In this examination of the evolution of government's role in child welfare, the authors note the difficulties encountered by policy-makers and administrators in striking a favorable balance between child advocates who support government intervention in child care and development, and those who mistrust government intervention in the family-child relationship. They specifically examine the emergence of bureaucracies (such as the Children's Bureau and the Office of Child Development) and their inadequacies, the political forces (such as lobbying groups) that have influenced policy-making, and special child welfare programs (such as the free lunch program and children's health programs) designed in part to be instruments of social reform. They conclude that public policy should focus on two objectives: defining minimum standards of needs and perfecting mechanisms for meeting those needs according to an established set of priorities. The children's policy most feasible, they believe, is one targeted to poor, handicapped, or dislocated children. (Author/DS)