Abstract

The article aims to contribute to the sociological theory of the welfare state by addressing a fundamental puzzle of social policy, namely, the weakness of its claim to be a rational effort of society dealing with problems of social integration. Drawing on the work of Franz-Xaver Kaufmann, I distinguish between the cultural or ideational side of the welfare state and the social engineering or outcome side, arguing to take the rhetoric and symbolism of social policy more seriously. The integration of society is more due to the communicative action of social policy than to its organizational quality. As early as the axial age civilizations, symbolism and ideology emerged as an autonomous field of social conflict and societal union. Taking ancient Israel as an example, I argue that societal integration may take place even in the absence of strong institutional correlates of social politics. This can help to explain why the welfare state in modern society is compatible with ever-increasing economic and social inequality.