This article reviews the empiricist tradition that has been particularly strong in social administration. The various factors that have been identified in this tradition can be drawn together under the general category of the 'perspective of the state': it conceptualises society from the viewpoint of the welfare state, rather than attempting to analyse the relation of welfare state to society. The limitations placed on the welfare state by its place in capitalism are taken for granted and do not enter the picture.
Various accounts of how this perspective has evolved in this country are discussed. Its strength is linked to the lack of oppositional labour politics. The problems that result from the perspective are illustrated in four areas: the treatment of ideology, of the conception of need, of the failure of state welfare to substantially enhance welfare and of marxist approaches to social policy. The argument points to the capacity of the perspective of the state to assimilate critical approaches.
I am indebted to Jen Dale, Bob Deacon, Ian Gough, Sue Lakeman and Ramesh Mishra for comments on an earlier draft.
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