Institutional Change and the Challenge of the Underclass

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Abstract
This article calls for greater emphasis on the institutional challenge of the urban underclass, particularly on implementation studies of new social programs. The need for such a shift in emphasis is examined in historical context, stressing the pluralistic and competitive nature of the American policy process, the structure of American federalism, and the critical role of state governments in chartering and overseeing the major institutions that provide social services. Two types of action are proposed to give greater attention to institutional dimensions of the challenge of the urban underclass: (1) evaluation research that incorporates institutional, attitudinal, and community variables; and (2) new consultative arrangements involving panels of academics and experts to assist government agencies in the implementation of social policies focused on the urban underclass.

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