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The whole historical reasons why government got involved in welfare makes for interesting reading. Growing up in a small town in Quebec, it was started by my uncle and another gentleman, we did not have 'welfare'. When one of our neighbours got into difficulty everyone pitched in and haelped. It was just what you did, no questions asked.
In bigger cities life was more impersonal and it fell to various organizations to pick up the slack. Unfortunately, many of these organizations were of a religious nature and tended to only help their own kind.
This was where government stepped in, but begrudgingly and so did a half-assed job of it. As has been noted above regarding fishes and fishing, they gave out the fishes but not the lessons in how to fish. Sometimes to do a job right it takes $$$ and the pols did not want to spend the $$$.
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