Quote:
Skeptics view the increase in minimum wage not as a measure that will promote the economic well-being of lower-income citizens, as it is intended to be,
rather as a step that will increase unemployment and have the opposite of its intended effect.
The basic difference between
Rather and
But is that
Rather is used for preference while
But is used for contrast
Also, the idiom is
Not X But Y
Not X But Rather Y
The idiom is also used as Not Only X But Also Y, but that shows something in addition to what is said earlier. In the question above, the meaning is pure contrast, so we will keep this one out.
Here, X = as a measure that will promote the economic well-being of lower-income citizens, as it is intended to be,
Y = as a step that will increase unemployment and have the opposite of its intended effect.
A. rather as a step that will increase unemployment
There is no contrast that is shownB. yet as a step that will increase unemployment
Wrong idiomC. but step that will increase unemployment
The elements X and Y are not parallelD. but as a step that will increase unemployment
CorrectE. but also as a step that may increase unemployment
But Also introduces something in addition to what is said earlier. The meaning is about contrast of one thing with another.