INTRODUCTION TO PART III
In the preceding parts of this book the major programs in the United States, the proposed plan for Britain, and the New Zealand system have been broadly described with special emphasis on the important issues that are illustrated by them. The present part is to be concerned with the major issues. Occasionally, illustrations will be drawn from the earlier parts, but no detailed descriptions will be repeated. It will, however, be necessary from time to time to introduce fairly detailed discussions of certain social, economic, and governmental factors that have to be considered in connection with the major issues. These matters have not been taken up in the earlier chapters with respect to the United States because in this country the problems of completeness of coverage, comprehensiveness of benefits, integration of benefits, and integration of administration have not as yet been squarely faced. When they are faced, certain social, economic, and governmental issues stand out with clarity and are not lost in the fog which prevails when the nation and the states legislate more or less independently by categories.
The problem of the selection and the arrangement of the major issues has presented no little difficulty. The chief trouble arises from the fact that few of the issues are independent; most of them are interrelated. For example, decisions with respect to the size of benefits to be granted and the conditions under which they are to be given would be relatively simple did they not involve issues with respect to the cost and who is to bear the cost. In the following pages we present first the social factors, second the financial factors, and third the governmental factors. These lines cannot, however, be sharply drawn and some cross referencing and even repetition will be necessary. The reader is cautioned, however, that because of the interrelationships, it is necessary to read practically the