Making an Issue of Child Abuse Final

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BOOK REVIEW: MAKING AN ISSUE OF CHILD ABUSE Barbra J Nelson Kayla Gordon McDonald, S.-K. (1987). [Review of Making an Issue of Child Abuse: Political Agenda-Setting for Social Problems, by B. J. Nelson]. Policy Sciences, 20(1), 77–79. http://www.jstor.org/stable/4532102

1 Table of Contents Abstract .................................................................................................................................. 2 Key Concepts: .................................................................................................................................. 2 Book Summary ....................................................................................................................... 3 Child Abuse as a Social Problem ....................................................................................................... 3 Theoretical Approaches to Agenda Setting ....................................................................................... 5 Assessment ............................................................................................................................. 7 Reference ............................................................................................................................. 10

2 Abstract In "Making an Issue of Child Abuse," Nelson delves into the process of agenda-setting within governmental institutions, with a specific focus on political agenda-setting as the book's core message. Nelson argues three main points: recounting the history of child abuse policymaking, discussing political agenda-setting in general, and exploring the concept of "public use of private deviance." Nelson covers agenda-setting in various governmental areas, such as federal agencies, states, and the U.S. Congress. Additionally, it examines the role of media in shaping public opinion and political agendas. Nelson goes beyond case studies by discussing different theoretical approaches to agenda-setting, comparing organizational, issue cycles, careers, clusters, and economic approaches. Key Concepts: • Recounting the history of child abuse policymaking • Discussing political agenda-setting more generally • Exploring the "public use of private deviance."

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3 Book Summary Child Abuse as a Social Problem Nelson's book delves into the history and evolution of child abuse as a social problem in America. It begins by highlighting the gilded era as the backdrop, where extreme cases of brutality were the only ones addressed by the courts. At the same time, child-rearing decisions were solely considered the responsibility of parents, particularly fathers. The pivotal moment came in 1874 with the rescue of Mary Ellen, an abused child, leading to establishing the New York Society for the Prevention of Cruelty to Children (SPCC) and recognizing child abuse as a widespread issue. Nelson introduces the concept of "structural readiness for change" and discusses the forces that propelled the belief in protecting childhood, including the natural rights ideology, commitment to civic education, and the rise of middle-class families. The SPCC's primary objective was to rescue children from harmful situations, and in 1881, the Cruelty and Neglect Statute was enacted in New York to protect child protection agents. However, the SPCC's approach began to shift when they started viewing neglected children as a threat to the American Republic, leading them to target abused children from poor families and focus on rehabilitating them by placing them in Protestant middle-class families to fit societal expectations. This sparked conflicts among different SPCCs' approaches, with Massachusetts pioneering family rehabilitation. Progressives advocated for family-like settings in juvenile courts, emphasizing the importance of protecting women and children and ultimately shaping child welfare policies.

4 The civil rights movement in the 1950s and 60s further propelled the recognition of equity and social responsibility. Amendments to the Social Security Act, the war on poverty, and the Supreme Court's Re-Gault opinion extended protection to children's rights and welfare. The Comprehensive Child Development Act proposed a model for meeting children's needs, but President Nixon vetoed it. Despite the challenges, awareness of child abuse increased during this era. The medical field played a crucial role in identifying and addressing child abuse. Radiologists such as Caffey, Evans, and Pediatrician Kempe raised awareness in the 1960s by identifying specific signs of abuse and publishing influential articles. Defining and measuring child abuse became challenging, with different perspectives on its causes and classification. The Child Abuse Prevention and Treatment Act (CAPTA) of 1974 provided a comprehensive definition, although certain aspects were intentionally suppressed to maintain non- controversiality. Neglect, poverty, and maltreatment were often overlooked, but government involvement was driven by the need to allocate funds and justify expenditures. Efforts to measure child abuse faced difficulties due to varying definitions, but compiling reporting statistics revealed many cases. Nelson mentions the existence of self-help groups like Parents Anonymous and describes how child abuse gained recognition as a public issue, leading to the passage of the Child Abuse Prevention Act in 1973. However, the 1980s brought challenges as President Reagan cut social programs, shifting responsibility to private entities. The resolution to the problem remained elusive. Physicians played a significant role in shaping the narrative around neglect and abuse, framing

5 it as a social illness. This perspective positioned child abuse as a form of medical deviance, leading to medical interventions as the solution. However, this individualistic approach overlooked structural causes and created inequities. Conservatives criticized the loss of family autonomy, while liberals pointed out the limitations of public efforts. Child abuse was viewed as a public health matter, and the state was seen as responsible for addressing it. Theoretical Approaches to Agenda Setting Nelson explores agenda setting from different perspectives, including a processual organizational model, an issue cycle, a careers clusters perspective, and an economic approach. The focus is on the organizational perspective, explicitly examining how public officials decide to promote new issues. Historically, children-related concerns were primarily directed to the Children's Bureau, which had significant implications for programs addressing child abuse. Nelson skillfully traces the political and organizational journey of the Children's Bureau, highlighting how the loss of interest and changing roles led to its decline. It is noted that the (CAPTA) of 1974 played a crucial role in sustaining the existence of the Children's Bureau. The role of media in shaping the political agenda is another aspect explored by Nelson. Following the publication of "The Battered Child Syndrome" in 1962, child abuse gained widespread media attention through newspapers, magazines, radio, and television. Dramatic images and stories of severely abused children contributed to the public's engagement with the issue. This media coverage created an opportunity for legislators to act, passing reporting laws and subsequent measures like protective custody in all 50 states and the District of Columbia between 1963 and 1967.

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6 The U.S. Congress provides a vivid illustration of how agenda-setting unfolds. As the chair of the Senate Subcommittee on Children and Youth, Senator Mondale strategically placed the child abuse issue back before Congress in 1973, despite President Nixon's previous veto of childcare-related legislation. Through emotional appeals from abusers and victims, graphic depictions of abuse cases, and expert testimonies, the subcommittee garnered media attention and exposed the issue to the public. Despite potential challenges, such as focusing on physical abuse over all forms of maltreatment, emphasizing that abuse affects multiple social classes, upholding parental rights to discipline children, and limiting the role of government in families, Mondale successfully pushed for the passage of the Child Abuse Prevention and Treatment Act in 1974. Subsequent reauthorizations of the actin 1978 and 1981 solidified child abuse as a federal issue, with a notable shift in addressing neglect and abuse in various forms rather than solely severe physical abuse. Nelson delves into the controversies and limitations surrounding intervention in families within the context of child protective services (CPS). She acknowledges the need for more consensus on the effectiveness and timing of interventions while also addressing concerns raised by different groups regarding issues such as protective custody and the removal of children. Nelson recognizes the complexities of intervention and highlights the need to navigate these challenges. Furthermore, Nelson concludes by discussing the future of CPS. It presents two potential paths for reformers: supporting incremental change or advocating for more sweeping change. It acknowledges the inherent limitations and complexities in addressing child abuse and neglect,

7 emphasizing the importance of understanding the complexities and making informed decisions for the future of CPS. Assessment Nelson presents valuable insights that extend beyond the specific problem of child abuse. The book's messages about the emergence of child abuse as a public issue and the process of political agenda-setting have broader applicability to other social problems. The underlying mechanisms and factors discussed, such as the role of media, interest groups, and political dynamics, can be relevant to the emergence of various policy issues. Although Nelson focused on federal efforts in addressing child abuse, the messages can be applied to State and local governments. By focusing on the roles of legislators and the media or stakeholders, the policy process is synonymous across the playing field. While focusing on the political agenda setting, influence of interest groups, and the decision-making dynamics are relevant to all three branches of government. Additionally, Nelson’s research is applicable to other policy issues requiring agenda-setting and policymaking, not just child abuse. The factors that shape public understanding, media influence, and the role of interest groups are common elements in formulating various social and public policy issues. The relevance of Nelson’s messages is evident when thinking of other policy issues such as climate change. Like child abuse, climate change was once a singular view of few conspiracy theories. Now it’s a critical public crisis affecting everyone. By studying the role of media in generating awareness, the influence of interest groups, and the political agenda-setting processes, we should be able to shift the narrative of climate change.

8 When applying Nelson to a class reading, Nelson provides valuable insights into policymaking and agenda-setting dynamics. One key message from Nelson's work is the significance of understanding political agendas by examining the media, policy challenges, and decision-making processes related to child abuse. Nelson’s messages align with the policy issue discussed in John W. Kingdon's book, "Agendas, Alternatives, and Public Policies," we can better understand the factors that influence issue inclusion on the agenda and the consideration of policy alternatives. Nelson's emphasis on the interaction between different streams—problem, policy, and political—aligns with Kingdon's theory of coupling in policy change. This alignment becomes crucial in the policy issue of having access to birth control. When these streams converge, including problem identification through focusing events and indicators, policy alternative development, and the influence of critical actors in the current political environment, a policy window opens. This window presents an opportunity for new policies to address pressing issues. Nelson's messages to other policy issues are evident, as they underscore the importance of aligning streams to draw attention to issues and facilitate policy change. These messages can be applied to all levels of government. For example, in addressing the recurring problem of raw sewage flowing into the Tijuana River, it is important to promote better alternatives on the political agenda to tackle environmental and health concerns. Kingdon's theory of agenda- setting and the three streams is referenced in Birkland's Chapter 6, highlighting its relevance in understanding the policy process.

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9 The messages in Nelson's book are vital in understanding the public policy process. I agree with her analysis and would love to see her write more from today's viewpoints on child abuse. It is interesting to see all the factors that go into making a difference in the public policy process. The alignment between these messages and my observations of how policy issues are addressed strengthens my agreement with them. The coupling theory and the recognition of participants' role in effecting change resonate with my understanding of the policy process. The insights provided by this book has shape my outlook of public policy. Nelson highlighted the significance of strategically placing issues on the political agenda and emphasized the need to understand the dynamics that drive policy change by coupling the three streams. While working in local government, I will be able to strategically place issues on the political agenda while acknowledging the role media can play in generating awareness while assuring, I am engaging with the appropriate stakeholders while navigating the political landscape. Hopefully, this in turn will make me a better advocate in creating and sustaining change effectivle. In conclusion, I find the messages of this book to be valuable in learning about the history of the public policy process and how the government operates. Integrating the history of how public policy played a role in the protection of children will always resonate with my professional and personal actions in policy processes.

10 Reference McDonald, S.-K. (1987). [Review of Making an Issue of Child Abuse: Political Agenda-Setting for Social Problems, by B. J. Nelson]. Policy Sciences, 20(1), 77–79. http://www.jstor.org/stable/4532102 Birkland, T. A. (2020). An introduction to the policy process: Theories, concepts, and models of public policy making . Routledge. Kingdon, J. W. (2003). Agendas, alternatives, and public policies (2nd ed.). Longman Publishing Group. Raw sewage flowing into the Tijuana River brings toxic sludge to California. (2020, September 13). Retrieved from https://www.cbsnews.com/news /raw-sewage-southern- california-coast-tijuana-mexico -60-minutes-2020-09-13/

Making an Issue of Child Abuse Final

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