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SOCIAL WELFARE AND SOCIAL WORK a welfare agency, and an initial step in child welfare
services.
THELMA LEE MENDOZA
1900, some attempt was made to alleviate the condition
AUTHORS:
of deaf children at the Philippine Normal School, and
Gertrude Wilson characterizes social welfare as an in 1910, a school for the deaf and blind was organized.
organized concern of all people for all people.
1917, the Associated Charities of Manila was founded
Walter Friedlander defines it as “the organized system by a group of civi-spirited Americans and Filipinos,
of social services and institutions, designed to aid having in mind the concept of a Community Chest, as it
individuals and groups to attain satisfying standards of is now called.
life and death.
October 4, 1947, recognizing the need for a more
Elizabeth Wickender, social welfare includes those centralized and better integrated social welfare program,
laws, programs, benefits and services which assure or the Bureau became the Social Welfare Commission, and
strengthen provisions for meeting social needs was placed under the Office of the President.
recognized as basic to the well-being of the population
and the better functioning of the social order. August 1948, President Quirino created the
President’s Action Committee on Social Amelioration
Pre-Conference Working Committee for the XVth
(PACSA) which was changed with the “duty of giving
International Conference on Social Welfare defines
social welfare as all the organized social arrangements relief assistance to the hungry, the homeless and the
which have as their direct and primary objective the sick…to victims of dissident depredation and violence”.
well-being of people in a social context. January 3, 1951, the Social Welfare Commission and
Richard M. Titmus – sees social problems as structural the President’s Action Committee on Social
or basically located in the economy. Amelioration were fused into one agency called the
Social Welfare Administration.
United States Council on Social Work Education has
this definition of social work: “Social work seeks to The Division of Rural Welfare in the Social Welfare
enhance the social functioning of individuals, singly and Administration was created by Administrative Order
in groups, by activities focused upon their social No. 7, on September 5, 1951, to deal with the mounting
relationships which constitute the interaction between social problems in the rural areas.
man and his environment. Republic Act 4373 is generally considered as the formal
June 27, 2001, the International Association of recognition of social work as a profession in the
Philippines.
Schools of Social Work and the International
Federation of Social Workers jointly announced this In 1968, President Ferdinand E. Marcos signed
new international definition of social work which, it is Republic Act 5416, known as the Social Welfare Act,
believed, is applicable to social work practitioners and elevating the SWA into a Department.
educators in every region and country of the world: “The
President Ferdinand E. Marcos declared Martial Law
social work profession promotes social change,
and set up a crisis government on September 21, 1972.
problem-solving in human relationships and the
This was the period of the First (1960s) and Second
empowerment and liberation of people to enhance
(1970s) United Nations-declared “Developmental
well-being.”
Decades”.
February 5, 1915, the American government created the
September 8, 1976, the Department of Social Welfare
Public Welfare Board with the passage of Legislative
became the Department of Social Services and
Act No. 2510, essentially to coordinate the welfare
Development shifting emphasis from the traditional,
activities of various existing charitable organizations.
often institution-based social welfare to
January, 1917, a government orphanage was set up in community-oriented programs and services which
Makati, Rizal, the first government entity to operate as
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underscored people’s own capacities for 3. Coordinate government and voluntary efforts in
problem-solving. social welfare work to avoid duplication, friction and
overlapping of responsibility in social services.
June 2, 1978, President Marcos issued Presidential
Decree No. 1397, providing for the conversion of Josefa Jara Martinez, a government pensionada who
departments into ministries, to adapt to the requirements had obtained a social work diploma from New York
of the change from a presidential to a parliamentary form School of Social Work in 1921
of government. The Department was renamed the
Ministry of Social Services and Development. Virginia Abellera-Peña, Juana Santos Silverio, Flora
Palomar Ruiz, and Felisa Garina) had their start in the
1949, the Council of Welfare of the Philippines and the Associated Charities. Later, Asuncion A. Perez, who
Community Chest of Greater Manila were organized. had also taken some social work courses in the United
Community Chest was established primarily on States, took over Mrs. Martinez’s job at the Associated
response to the need and desirability of having one Charities when, in the 1920’s, the latter returned to her
organization with the responsibility of raising funds and job at the Division of Dependent Children in the
allocating them to member agencies on the basis of need. Office of the Public Welfare Commissioner.

January 30, 1987, President Corazon C. Aquino 1948, President Elpidio Quirino established the
signed Executive Order No. 123, recognizing the President’s Action Committee on Social Amelioration
MSSD and renaming it Department of Social Welfare (PACSA), a community development agency to help
and Development. with the problem of social unrest in the countryside.

October 10, 1991, R.A. 7160, otherwise known as the June 1950, the Philippine School of Social Work was
Local Government Code, was passed. established, offering a one-year degree program called
Master of Arts in Social Administration.
1987 Constitution that “the State shall encourage
non-governmental,community-based, or sectoral June 19, 1965, Republic Act No. 4373 was passed,
organizations that promote the welfare of the nation.” regulating the practice of social work and the operation
of social work agencies (R.A. 4373). The law requires
National Economic and Development Authority that one must be a registered social worker to qualify for
(NEDA) defines NGOs as private, non-profit, voluntary professional practice.
organizations that are committed to the task of
socioeconomic development and established primarily The Philippine Association of Social Workers is the
for service. national organization for professional social workers in
the country. Founded on November 12, 1947, it was
R.A. 4373 (the Social Work Law, 1967) provides that incorporated on April 18, 1948, and re-incorporated
“no social work agency shall operate and be accredited with the Securities and Exchange Commission of Social
unless it shall first have registered with the Social Workers, Incorporated (PASWI).
Welfare Administration which shall issue the
corresponding certificate of registration.” In addition, November 24, 1964 the Philippines Social Work Code
R.A. 5416 (1968) empowers the Department to: of Ethics was adopted.
The PASW helped work for the proclamation of 1970 as
1. Set standards and policies to insure effective
Social Welfare Year (Executive Order No. 665), which
implementation of public and private social welfare
challenged social work educators and practitioners to a
programs
deeper involvement in the national development scheme,
2. Accredit public and private institutions and and a re-examination of welfare services for greater
organizations engaged in social welfare activity effectiveness.
including the licensing of child-caring and child The first workshop in March, 1967 resulted in the
placement institutions and provide consultative services formation of an Ad Hoc Committee “to hold continuing
to them dialogues to further specify what needs to be included in
the course content for both undergraduate and graduate
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programs” and to “provide continuity between the first Louise C. Johnson (1989)
and succeeding workshops.”
Social work is a profession that is practiced
independently or as a part of a team in many different Social workers become involved when
individuals are having difficulty in relationship with
fields – health (medical social worker; psychiatric social
other people; in growing so as to maximize their
worker), education (school social worker), labor and
potential; and in meeting the demands of the
industry (industrial social worker), corrections (court
environment. Harriet Bartlett has described the
social worker, probation social worker) and community situation as “people coping” and “environmental
development (community organizer), among many demands.”
others.
social functioning means the interaction between the
William Schwartz states that “Every profession has a individual and his situation or environment. Social
particular function to perform in society: it receives a functioning is the key concept in social work so its
certain job assignment for which it is held accountable.” meaning should be very clear.
Werner Boehm (1958) social environment is a network of overlapping social
systems and social situations, including ecological
Social Work seeks to enhance the social
systems, cultures and institutions, whereas a social
functioning of individuals, singularly and in groups, by
situation is an impinging segment of the social
activities focused upon their social relationships which
environment.
constitute interaction between individuals and their
environments. These activities can be grouped into three social role (defined as the socially recognized pattern of
functions: behaviors and activities expected from an individual
occupying a certain position in society).
1. Restoration of impaired capacity
2. Provision of individual and social resources THE FUNCTIONS OF SOCIAL WORK
3. Prevention of social dysfunction To assist individuals and groups to identify and resolve
or minimize problems arising out of a disequilibrium
between themselves and the environment. This is
William Schwartz (1961)
referred to as the restoration/curative/remedial as well
The general assignment for the social work as rehabilitative function of social work. The curative
profession is to mediate the process through which the aspects of social work seeks to remove factors which
individual and society reach out to each other through a have caused the breakdown in the person’s social
mutual need for self-fulfillment. functioning. The rehabilitative aspect tries to put back
the person to a normal or healthy state of social
William Gordon (1969) functioning.
The central focus of social work traditionally To identify potential areas of disequilibrium between
seems to have been on the person-in-his-life-situation individuals or groups and the environment in order to
complex –a simultaneous dual focus on man and his prevent the occurrence of disequilibrium. This is referred
environment. to as the preventive function of social work which
Harriet Bartlett (1970) involves the early discovery, control, and elimination of
those conditions or situations which may have a harmful
effect on social functioning.

Social functioning is the relation between the To seek out, identify, and strengthen the maximum
coping activity of people and the demand from the potential in individuals, groups, and communities. This
environment. This dual focus ties them together. Thus, is referred to as the developmental function of social
person and situation, people and environment, are work. The aim is both to help the individual make
encompassed in a single concept, which requires that maximum use of his own potentials and capacities as
they be constantly reviewed together.
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well as to further the effectiveness of available social or helping person in the context of Philippine
community resources. culture,” or “the Western concept of
professionalism where a social worker is
Based on a careful canvass of the sociological literature
expected to be business-like and impersonal
on occupations, Ernest Greenwood was able to distill
cannot work in our setting”).
the following five elements as constituting the
distinguishing attributes of a profession:
2. Professional Authority – This authority
1. Systematic Body of Theory – “The skills that
ascribed to the professional by reason of her
characterize a profession flow from and are
educational background gives the client a sense
supported by a fund of knowledge that has been
of security that the professional has the capacity
organized into an internally consistent system
to help him with his problem. The exercise of
called a body o theory. Theory serves as a base
professional authority is not without limits,
in terms of which the professional rationalizes
however. The professional social worker, like
his operations in concrete situations. Acquisition
any other professional, should guide or assist her
of the professional skill requires a prior or
client only along her area of competence or she
simultaneous mastery of the theory underlying
would violate the authority of another
that skill. Because understanding of theory is so
professional group. She should not exploit her
important to professional skill, preparation for a
client for her own end, especially since her
profession must be an intellectual as well as a
“superior” position give her a psychological
practical experience.”
advantage over her client.
3. Community Sanction – Recognition of
There are three types of knowledge which social work
professional authority is expressed not only in
uses:
the client-professional relationship but also in
a. Tested knowledge is knowledge that has been the professional-community relationship. The
established through scientific study (research). community sanctions a profession’s authority by
In social work, tested knowledge comes in the way of giving it certain powers and privileges
form of borrowed knowledge from different are the profession’s control over its
professions and disciplines, as well as from that a. Training centers
which has been developed through social work b. Admission into the profession and
research. c. Standards for professional performance
b. Hypothetical knowledge still has to undergo
transformation into tested knowledge, even if
4. Regulative Code of Ethics – Every profession
tentatively such knowledge may be accepted to
has a built-in regulative code, partly formal and
explain certain facts (e.g., the hypothesis that the
partly informal, which compels ethical behavior
nature and extent of people’s participation is
on the part of its members. This code serves to
crucial to effective community problem-solving,
check possible abuses which can arise out of a
or that ignorance more than religion is the
profession’s exercise of authority, and its
reason for the low acceptance of family planning
accompanying powers and privileges.
among Filipino couples).
Assumptive knowledge, or “practice wisdom,”
of course, abound in social work. We can 5. Professional Culture – Formal and informal
perhaps say that the more experience one has groupings characterize all occupations, including
had in practice, the more assumptions or the professions. For social work, the network of
suppositions he tends to make related to his formal and informal groups within which it
work (e.g., “Clients value service more when it operates includes the organizations that benefit
is not given entirely free,” or “a slightly from a profession’s services (schools, courts,
authoritarian social worker is a more effective social agency, hospitals, etc.), the educational
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institutions which produce and replenish make to obtain what is preferred, whether article,
professional manpower; and the professional behavior, or state of affairs.
association which promotes professional
knowledge refers to what is thought to be, as confirmed
interests and aims. The “interactions of social
by reality. Knowledge denotes the picture man has built
rules required by the formal and informal groups
up of the world and himself as it is, not as he might wish
generate a social configuration unique to the
or fantasize or prefer it to be. It is a picture derived from
profession, viz., a professional culture.” The
the most rigorous interpretation he is capable of giving
culture of a profession consists of its values,
to the most objective data he is able to obtain.
norms, and symbols.
skill – is crucial to any profession. The dictionary simply
Social Values refer to the basic and fundamental beliefs defines “skill” as ability, expertness, or proficiency
of a profession group, practically the reason for its gained from practice and knowledge. Obviously, from
existence. In social work, we believe that individual is this definition, we understand that skill is concerned with
the primary concern of society, and that society has a application, with doing, but not just doing any which
responsibility to help the individual realize his potentials way, but ably, expertly, proficiently.
by removing the obstacles which prevent his
self-fulfillment, among other things. The philosophy of social work is derived from the
society of which it is part. Social work is based on the
Professional norms are the accepted belief that man has worth and dignity. This belief is
standards of behavior of doing things, which guide the generally associated with democratic theory, which
professional in various situations such as how to gain views man as having worth because he is capable of
entry into formal and informal groups, how to handle reason, of rational analysis, and choice.
consultations, how to relate to superiors, colleagues and
subordinates, how to treat clients, how to challenge an Howard Mumford Jones, an outstanding humanist,
outmoded theory, how to present a new idea, and so on. writes – “Humanism implies an assumption about man.
It implies that every human being by the mere fact of his
The symbols of a profession are its existence has dignity, that this dignity begins at birth,
“meaning-laden items,” including emblems, insignias, that the possession of this dignity, even if dimly realized
dress, history, its idioms and vocabulary and its by the possessor, is, or ought to be, the continuum of his
stereotypes of the professionals, the client and the life, and that to strip him of this dignity, is to degrade
layman. There are many such symbols in social work. him in so outrageous a way that we call the degradation
In discussing the attributes of a profession, inhumane…”
Greenwood concludes that “social work is already a
profession; it has too many points of congruence with According to the Curriculum study, these values cited
the model to be classifiable otherwise.” constitute a minimum commitment for the social worker.
From the foregoing criteria, we can cull three essential Implied in these values are the following concepts:
components: values, knowledge, and skill. These 1. The concept of human potentials and
components are present in all professions. capacities. That man can fulfill himself is
“Value” is defined as that worth which man premised on the belied that he is inherently
attaches to certain things, systems, or persons within the endowed with potentials and capacities.
realm of usefulness, truth, goodness or beauty. They are 2. The concept of social responsibility. That the
formulations of preferred behavior held by individuals or individual has the obligation to contribute to the
groups,… their preference for certain means, ends, and common good, and society, on its part, has the
conditions of life, which are often accompanied by responsibility to facilitate the development of its
strong feeling. William Gordon states that to “value” members, gives a dual meaning to this concept.
something is to “prefer” it, and a measure of the extent 3. The concept of equal opportunities. This
of a preference is what price, effort, or sacrifice one will concept is premised on the ideal of social justice,
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two elements of which are fairness and equality. life, making personal goals subservient to group
In addition, the concept of “access” is critical, goals. As asocial beings, they are discreet
for even if opportunities do not discriminate individuals who come together to form groups
against any individual or group, lack of access, for their mutual protection and safety. As
for one reason or another, detracts from the anti-social beings, men are viewed as inherently
meaning of this concept. self-seeking, egotistical, out to extend personal
4. The concept of social provision. This concept gain at the expense of others.
is based on the premise that there will always be 3. Democracy’s View of Man. Man is viewed as
people everywhere, at all times, with unmet capable of reason, of rational analysis and
needs or problems which are beyond their own choice. It believes that social, biological, cultural
capacity to solve. Thus, social provision refers to and psychological influences are powerful in
the desirability of providing social resources for determining behavior, but that man can
the satisfaction of human needs for the goal of overcome these influences and exercise choice.
human welfare.

The following are some of the dominant values of the

William Gordon, reporting on the work of the National Filipino around which other specific values cluster:
Association of Social Workers’ Commission in Social
1. Social Acceptance – defined as being taken by
Work Practice, said that there has been agreement that
one’s fellows for what one is, or believes he is,
“the ultimate value of social work rests upon a
and being treated in accordance with his status,
conviction that it is good and desirable for man to fulfill
this value is facilitated by the following
his potential, to realize himself and to balance this with
intermediate values:
equal effort to help others do the same.”
a. Smooth Interpersonal Relations (SIR) –
What is a man? What ideally is a man? Is he inherently which is a facility at getting along with
good or evil? How do we account for the difference? others in such a way as to avoid outward
These questions, according to Leonard Schneiderman, signs of conflict. It is believed to be
are important for social work because all social work acquired and preserved principally by three
activity is directed towards some change in the human means: (1) “pakikisama” which means
condition. “It is impossible to influence that condition, to “giving in,” “concession,” or following the
influence man and his situation, without some guiding lead or suggestion of another; (2)
notion not only of what man is, but of what he could be.” euphemism which is the stating of an
He describes different views about man which may help unpleasant truth, opinion, or request as
provide answers to these questions: pleasantly as possible; and (3) the use of
“go-between” (tulay) which means a third
1. Natural vs. Transcendental View. In the
party who will carry a message, assuage
naturalistic view, man is part of nature. He can
a bruise, or prevent an injury.
be studied and understood scientifically as we do
b. “Amor Propio” is a term used to refer to
the rest of nature, so that if we know all that
the sensitivity to personal affront and
science could teach us we could fully account
functions to protect the individual against
for man and his behavior. Then transcendental
loss of acceptance. Closely related to this
view, on the other hand, holds that science can
value is the value of “hiya” (literally
never fully explain man, partly due to our
translated, it means sense of shame) which is
ignorance, and partly because man has a
not merely the actual emotion felt when one
potential to transcend the natural order of things,
has violated social norms, but also, the
to choose, to create, and to be rational.
sensitivity to rebuke and fear of exposure of
2. Man as Social, Asocial, or Anti-social. Being
one’s insecure self.
social, men aspire to live on good terms with
others, to be part of and to contribute to group
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2. Emotional Closeness and Security in a Family form the basis for respecting the client
– this value is believed to be facilitated through (individual, group or community) under any
the following: sacrificing individual interest for circumstances, an approach which is “an
the good of the family, parental striving to give expression of a compound of attitudes that are
their children an education even at great cost to based on scientific assumptions about human
themselves, older children sacrificing for the behavior.”
younger siblings, and mothers especially,
making sacrifices for the family.
2. Participation of the client in problem-solving
3. The Authority Value – the belief is that
– one can almost say that the principle of
families will remain close if someone exerts firm
participation is already a given, for indeed, how
authority, and that such person must be
can there be a “helping relationship” without the
respected and obeyed. Closely related to the
client’s participation? Just the same, there is
authority value is the respect for traditions and
need to stress the point that the worker does not
rituals no matter how impractical they have
take over in a helping relationship. The client is
become. “Panalangin” (literally, prayer) which
there, and has a part in the entire
refers to blessing or grace one obtains for good
problem-solving process.
behavior and “bahala na” (fatalism) are part of
this adherence to traditions and beliefs.
3. Self-determination as a right of the client –
4. Personalism – this value attaches major
the main idea in this principle is that the
importance to the personal factor which
individual (or group or community) who is in
guarantees intimacy, warmth, and security of
economic, personal, or social need, has the right
kinship and friends in getting things done. Some
to determine what his needs are and how they
specific values related to personalism are
should be met. The worker does not do
“tiwala” (trust), “kilala” (personal reference),
everything for the client, for she knows that the
and “walang pakialam” (non-interference).
client is capable of “self-help”.
5. Utang na Loob – this value literally means debt
of gratitude. It is granted when a transfer of 4. Individualization of clients – the principle of
goods or services takes place between individualization involves “the recognition and
individuals belonging to two different groups. It understanding of each client’s unique qualities
compels the recipient ti show his gratitude and the differential use of principles and
properly by returning a favor “with interest” to methods in assisting each toward a better
be sure that he does not remain in the other’s adjustment, …based upon the right of human
debt. beings to be individuals and to be treated not just
6. Patience, Suffering and Endurance – this is a as a human being but as this human being with
cultural belief that a person must suffer before his personal differences.”
he can gain happiness, and related to it is that
which many still believe, that women, 5. Confidentiality – the idea behind the principle
particularly, must suffer in silence. of confidentiality is to provide the client
protection, within the limits of the law, from
harm that might result from his divulging
SOCIAL WORK PRINCIPLES
information to the worker. Trust is an important
element in a client-worker relationship. If a
1. Acceptance of people as they are – the social client is to participate fully in the process of
worker brings into the relationship with the solving his problem, if he is to freely express his
client her professional education and experience, feelings about himself and about others in his
and the agency’s support of her helping role in situation, and if he is to put down his “defenses”
keeping with its societal prescribed goals. These and just be himself with the worker, then there
 8

must be some assurance that what he tells his

worker will be kept in confidence.

6. Client-worker relationship – the relationship

between worker and client (whether the client is
a person, a group, or a community), is the means
for carrying out the social worker’s function.
The phrase that “social work problem-solving
takes place within a meaningful worker-client
relationship” puts the emphasis on
“relationship.”

Ambivalence, introduced into psychiatry by the noted

psychiatrist, Bleuler, is based on the proposition that the
human mind functions in a dualistic way, that conflict
between its opposing tendencies (ambivalence), often
results.

Preference is a concept from Freudian psycho-therapy.

It is believed to take place when the client unconsciously
transfers to the social worker attributes or characteristics
of some important or powerful persons in his early life.
This may result in positive or negative attitudes toward
the worker, but being aware of the transference, the latter
knows these attitudes are not directed toward her
personally.

Ethics is the science that treats of morals and right

conduct. Professional ethics is the system of ethical
principles and rules of conduct generally accepted by the
members of a professional group, based on the
philosophy, values, and guiding principles of that
profession.

It has two aspects:

The profession’s Code of Ethics which is the written

expression of some of these principles and rules of
conduct for the guidance of the professional group
(drawn and adopted by its own members), and the

Unwritten principles and rules of conduct which usually

have the same force as the code. Together, they serve as
a compass which helps guide practitioner in her
professional relationships – with her client, with her
colleagues and her profession, with her agency, and with
the public.