Grigor Artushevich Akhinov, Sergei Vyacheslavovich Kalashnikov Social Policy: Study Guide
Chapter 1 THE RISE AND DEVELOPMENT OF THE SOCIAL POLICY OF THE STATE
1.1. THE ROLE OF THE STATE IN IMPLEMENTING SOCIAL FUNCTIONS
In its most generalized form, the activity of the state to meet the social needs of people is defined as its social policy. Being an extremely generalized concept, the concept of social policy allows for different levels of concretization according to a set of subjects, institutions and goals. So, social policy can be defined as the activities of the state and other public institutions aimed at the progressive development of the social sphere, improving conditions, image and quality people's lives, ensuring a certain part of their vital needs, providing citizens with the necessary social support, assistance and protection. It is obvious that the social policy of the state in the most direct way takes into account the social activity of other social institutions, being with them in various relations of interdependence. There is no doubt that the final result of state social policy is achieved thanks to the activities of not only the state and its institutions, but also other entities pursuing their own social policy, which to one degree or another coincides with the state within the existing legal field.
It is important to note that, among the subjects of social policy, the key role belongs to the state, since other private subjects of state social policy act as institutions for achieving the goals set by the state and function within the framework set by the state. In other words, in order to achieve its goals, the state acts through many subjects of various types of activity, which can be considered subjects of state social policy only to the extent that they ensure the social goals set by the state. All their other activity, even if it has a social effect, cannot be considered a state purposeful social policy. That is, in the final analysis, the subjects of the state's social policy are the state itself as a form of organizing power, its institutions and social structures, whose activities in the social sphere are determined by state goals.
In a democratic state, social goals are formed based on the interests of civil society institutions, and state social policy is a generalized vector of interests of various social groups.
The state is the subject of social policy, which is an activity aimed at managing the social development of society, ensuring the satisfaction of the material and spiritual needs of its members and regulating processes social differentiation society. However, it is obvious that, despite a certain connection, the satisfaction of social needs and the regulation of social relations refer to different functional systems of the state. With all the conventionality of the division of economic, political and social spheres, only the social functions of the state belong to the social sphere, while the regulation of social relations is political activity, aimed at solving the political tasks of the authorities.
The existence in society of needs to achieve social goals and their indirect satisfaction as a result of the activities of the state in the economic and political spheres do not yet indicate the existence of a purposeful social policy of the state. Actually, social policy as a purposeful activity to achieve social goals is carried out by the state only with the appearance of its social functions, that is, only when the state takes on direct responsibility and obligations to meet the social needs of citizens. In the concrete understanding of social policy as a purposeful activity of the state to implement its social functions, it is necessary to state that the state's social policy appears only with the emergence of specific social functions in it. Linking social policy to the social functions of the state suggests that the development of the structure of social functions of the state is the basis for structuring its social policy. With the evolution of the state from its simplest forms to the most complex, there is a corresponding transformation of social policy and its structural elements.
Social policy, like any teleological system, contains a subject, an object, subject-object relations, goals and mechanisms as elements. As a system, it is also structurally hierarchized, provided with resources and has various modalities (forms) of manifestation, depending on the specific content of subject-object relations and situations.
The implementation of the social functions of the state is carried out through social institutions at different organizational levels. It doesn't have to be government agencies. The subjects of the state's social policy include the competent state bodies (or institutions) that form the social information and legal field, provide material support or provide natural types of assistance (social services) to persons in need of them within the approved federal or territorial guarantees.
The role of the state is to ensure the achievement of the corresponding result through a variety of mechanisms. To solve its social tasks, the state involves trade unions, civil society institutions, political parties and corporations, humanitarian agencies, foundations, associations and other non-state entities. State social policy is the actions of the state in the social sphere, pursuing certain goals, correlated with specific historical circumstances, supported by the necessary organizational and propaganda efforts, financial resources and calculated for certain social results.
The state implements its social tasks in conditions when in a democratic (civil) society a plurality of ideologies and subjects gives rise to a variety of goals and multiple strategies social policy. At the same time, the state in its social policy integrates the goals of various subjects and seeks to subordinate their activities to its goals, aimed at meeting the needs of the majority in social progress.
In this capacity, the social policy of the state is a generalized social function, within the framework of which certain social functions are implemented.
The structure of social policy determined by the state consists of the main directions that copy the system of its social functions, and mechanisms for the implementation of these functions, which can be various, and not only state, structures, norms and principles. For example, the institutions and principles of tripartism and social partnership, being important mechanisms through which a number of social functions of social protection are implemented, smoothing social inequality, providing employment, providing social services and improving welfare, do not belong to the structural elements of the state. Created and functioning as mechanisms of social policy, they ensure the solution of the tasks set by the state. This example shows that social policy is not only a generalized function of the state, but also a generalized mechanism of its functioning, a real mechanism for achieving social goals.
Social policy is carried out by the state not only on the basis of certain principles and social goals, but also in accordance with certain economic, political and situational conditions and in reality is the result of many factors. Social policy is dynamic, changeable, subject to conjuncture. External conditions implementation of social policy can significantly change it for long periods of time. There are many relevant historical examples. The most striking of these is the rejection of the proclaimed principles and goals of achieving a high level of well-being for all by most welfare countries as a result of the inadequacy of this task to economic opportunities.
Social policy is directly influenced by the changing world. So, social policy, being a functional system of the state, is constantly in dynamics, changes following the constantly changing world and at the same time transforms the goals, principles and structural elements of the state itself.
The state acquires certain qualities only as a result of the emergence of new legal norms. To protect themselves from the influence of insufficiently substantiated experiments on the state and society, all states create an extremely conservative legal system that resists innovation. This allows us to resist the situational dynamics of social policy and allow only objectively substantiated changes that guarantee progress. In this respect, the social legislation of all countries is more conservative than the economic one, which is due to the delay in many cases of the consequences of social decisions and the impossibility of their quick correction. Decisions on the nature of the pension reform affect not only the current recipients of pensions, but also those who will retire decades later. Today's innovations in the field of social insurance will determine the level of social protection for a long time. Violation of the principles of solidarity between generations, replacement of insurance with compensation for damage, destruction of the material base of health care in accordance with the requirements of today's social policy will inevitably have negative consequences in the future.
Considering the evolution of states from the point of view of the level of development of social functions, it is possible to construct a conditional periodization of their genesis. Studying the social essence of the state, we are faced with the need to separate state social functions and manifestations of the social activity of society and its institutions (church, community, class, workshop, guild, etc.). This division is important both for understanding the nature of the social and for determining the specifics and mechanisms of the state's social activity.
Since the end of the 18th century. in Europe and Russia, a state-administrative system of public charity is taking shape. This system is characterized by the formation of an institutional aid system, the formation of a legal framework, administrative management, including territorial structures, and partial state financing of social assistance. A feature of this stage is that the state, taking responsibility for social policy, does not seek to directly perform social functions, but only assists other institutions in this - personal and public charity, charitable societies, local authorities, and the church.
It should be noted that at this stage, the opposition of mercy and charity to the police state approach to poverty is to a certain extent removed. The state no longer pursues poverty, but it still does not set the goal of eliminating it.
The two main characteristics of this stage - the emergence of proper social functions in the state and the appeal of social policy to all members of society - are interconnected and based on the need to ensure the consolidation of a society experiencing a progressive antagonistic contradiction under conditions of early capitalism. The principle of solidarity, according to which society has obligations to its members and which follows directly from the theory of social contract or social contract, cannot be realized through charity.
The development of the ideas of social insurance, or, in the terminology of that time, "mutual assistance", which later became the main instrument of social solidarity, dates back to this time. The ideas of social insurance as a mechanism for eliminating individual risks were embodied in the form of general cash desks at guilds and professional workshops that provide social assistance to widows and orphans of workshop members and in rural communities.
The development, along with the idea of solidarity and the idea of justice, which received the form of principles during the Great French Revolution, dates back to this period. The idea of justice, understood as compliance with the nature of things, either economic or political norms, was supplemented by the idea of justice within the framework of a social contract and natural human rights.
In accordance with domestic tradition, this stage can be designated as stage of public charity.
The next stage in the development of social functions begins in the second half of the 19th century. and characterized the transition of social functions from society to the state.
Mid-19th century became the crossroads at which the rational, dictated by the objective needs of survival and the economy, the path of development of the social functions of the state and the irrational path determined by religion, morality and mercy met. The development of the productive forces required a more powerful social integration of society, which could only be achieved through the activities of the state to consolidate all citizens on the basis of solidarity. At the same time, the relations between the state - society and the state - personality have undergone certain changes associated with the coincidence of state goals and moral and ethical principles of human community. In contrast to the utopian socialists, who emphasized the dominant value of the common good and the subordination of personal interests to the interests of society, which assigned the state the role of ensuring public goals, the idea of a welfare state (L. Stein) that appeared in 1850 removes the contradiction that has prevailed since the time of Aristotle. from the division of states into correct (they achieve the common good) and wrong (they achieve private goals). For the first time in the welfare state, personal and social goals coincide. And not just a coincidence, but the state's acceptance of the individual's goals as its own.
The idea of the welfare state was based on the ideas of the utopian socialists, which were transformed by I. Bentham and E. Chadwick into the thesis about the need to evaluate any legislation and all institutions from the point of view of the principle of "the greatest happiness for the greatest number of people." E. Chadwick was the first to put forward a provision on the need to change the social environment with the help of state activities, which should not only fulfill the function of helping the weak, but also create conditions for the development of its citizens.
Control questions
1. Who is the subject of social policy?
2. What is the role of the state in relation to other subjects of social policy?
3. Name the sources of social responsibility of the state.
4. What is the place of social goals in the functional structure of the state?
5. What are the reasons for the emergence of the actual social functions of the state?
6. What are the sources of development of social functions of the state?
7. Describe the relationship between the state and the individual.
8. Give the definition of social policy.
9. What are the sources of the formation of the idea of a welfare state?
10. Name the social institutions of the state.
1.2. SOCIAL RIGHTS AS A BASIS OF SOCIAL POLICY
Formation of the welfare state by the middle of the XIX century. began with the recognition of social rights as inalienable natural human rights along with civil rights. The struggle for social rights took shape in the political doctrine of social democracy, and the further development of ideas about social rights, which laid the foundation for the idea of a social state, took place mainly within the framework of social democratic theories.
However, the idea of social rights, represented by the concepts of freedom, equality, justice, solidarity, which is the cornerstone of modern society, goes beyond any one political theory and to one degree or another is present in any models of social structure. Thus, the development of ideas about the nature and content of social rights took place in the process of evolution of society and the state over the past three centuries and in the course of modernization of the main political doctrines.
Beginning with "Utopia" (1516) by T. Mora, the concepts of equality and justice are rigidly linked with the state structure and move from a speculative plane to a practical one, becoming the goals of a real reorganization of the world. It is important to note that the turning point of the transition of social rights from metaphysics to reality is their connection with the function of redistribution of public goods, which the state undertakes.
As basic needs of the individual and society, justice, equality, solidarity and freedom have different forms of manifestation, in most cases masking their essence.
The most common is the attribution of these concepts to ideals, which testifies to their perception mainly as moral-legal and socio-political categories.
Equality before God, equality before the law, equality in relation to the means of production, social equality - this sequence of development of ideas about equality actually fixes the development of not one concept, but completely different essential types of equality, each of which is associated with its own well-defined models of the world and society and characterizes completely different types of relations personality - society and personality - state).
The content and the main four types of equality are different: equality of people or ontological equality; equality of opportunity in achieving goals; equality of conditions - when living conditions are leveled with the help of legislation; de facto equality. These four basic types of equality also reflect, to a certain extent, the history of the evolution of the concept of equality.
The reaction of society to the social injustice of equality of opportunity is equality of conditions, when the state takes on the function of ensuring real equality on the way to achieving goals. The state legislatively establishes equality of conditions, uniform cultural and educational criteria (standards) and assumes responsibility for the economic provision of equal conditions, compensating for the unfavorable social situation of certain categories of people. For example, one of the manifestations of the state's provision of this type of equality is discrimination of certain successful social groups in favor of less effective ones - the obligation to recruit people with disabilities, women, African Americans, etc. brought to its logical absolute, in some countries has become a shining example of inequality.
Equality of conditions, which has become an important element of democracy and social law in modern society, has taken shape in the concept of "equality", which currently officially fixes the recognition by the state of the legislatively enshrined right of people to equal conditions for achieving certain social standards and the responsibility of the state for this.
At this level of development of equality, its implementation requires the state and its support, and, on the other hand, the state acquires a new function, due to which it increases its importance for the individual. The opposite conclusion is also possible - if the principle of equality of conditions is not implemented in a country, then such a state is not social. This criterion is especially important for the division into social and non-social modern states, the vast majority of which have a fairly wide range of social functions.
The concept of justice has also undergone significant changes over time. As a fundamental concept of ethics and political philosophy, justice reflects historically changing ideas about the relationship between rights and duties, work and reward, action and retribution, crime and punishment, etc.
The basis for understanding justice, starting with Aristotle, is the identification of two types of justice - commutative and distributive.
Commutative justice lies in the formal equality of rights. It is based on the principle of reciprocity and corresponds to the maxim "give everyone what he deserves." The basic idea of commutative justice is expressed by the ancient principle lox talionis(lat. "law of equal retribution") - "to give each according to his merits", the Old Testament "eye for an eye" or modern "to each according to his work."
In social policy, commutative justice is implemented in individual insurance mechanisms, when the payment of benefits is considered as a reimbursement of contributions, in the provision of additional social benefits for services - for example, social support for participants in military conflicts, veterans, etc. and remuneration in accordance with its complexity and heaviness.
Of particular importance in social policy is distributive justice, which has become a philosophical category directly related to the idea of equality. The most famous modern researcher in this area, J. Rawls, defining distributive justice, wrote that all social values - freedom and opportunities, income and wealth, the basis of self-esteem - should be distributed equally, and the exception should be those cases when the unequal distribution of what - Either or all of these values are carried out for the benefit of all.
Distributive justice is aimed at ensuring real equality, primarily economic, and involves the redistribution of benefits between rich and poor. Nowadays, the distributive justice that Aristotle spoke of is often referred to as social justice.
Unlike commutative justice, distributive justice cannot be realized without the intervention of an external force. To give something to someone, you need to take it from someone, and for this you need power. The state assumes the function of realizing distributive justice through violent redistribution, realizing justice as a natural human right to satisfy his social needs in an acceptable standard of living, social protection and minimal social benefits.
The idea of social (distributive) justice as a social right, of social redistribution of goods as a mechanism for the realization of these rights led John Rawls in his Theory of Justice (1971) to substantiate the idea of the welfare state. Indeed, social justice is at the heart of the welfare state, which means that all the various criticisms of the welfare state apply equally to criticism of the category of distributive justice as the source of certain social policies. In fact, modern trends in the modernization of social policy in many countries, the rejection of the idea of the welfare state, the transition to a liberal social state is a victory of commutative justice opposed to distributive justice.
In turn, the ideas of commutative justice come into conflict with the principle of equality. Natural differences in people that give rise to initial inequality cannot be fully compensated for by equality of opportunity. Seeking to "reward everyone according to his merits," commutative justice aggravates the natural inequality of people, which can not be fully leveled either by equality of opportunity or equality of conditions.
The conflict between the two types of justice, each of which has its own truth, cannot be resolved on the ethical plane and in practical life requires flexible coexistence of commutative and distributive justice within the framework of state social policy.
The insolubility of the problem of justice in theoretical terms (what exactly is fair cannot be determined a priori) was shown by Aristotle. He was the first to put forward the position that the solution to the problem of justice is always associated with specific experience and lies in the practical plane.
In this case, the state takes on the function of implementing different types justice. And this function can be assumed only by the state, which sets as its task the achievement of social goals and performs social functions, that is, the welfare state.
Thus, through the welfare state, distributive justice is realized as a natural social law, and the conflicts in society generated by the contradictions between commutative and distributive justice are resolved.
In the form of natural social rights, distributive justice is closely linked to the principle of solidarity.
The principle of solidarity, based on the interdependence of all members of society and the organic connection of people in the process of interaction, it is a mechanism of social interaction, manifested in mutual assistance. The principle of compulsory mutual assistance, understood as an instrument of justice, was the basis for the formation of the social insurance system.
The implementation of the principle of solidarity in practice, starting with the French Revolution, immediately faced its antipode - the principle of personal responsibility. The further development of both principles led to the opposition of liberal and social ideas, giving rise to their mutual limitation.
Industrialization and the development of market relations led to the predominance of liberal principles, resulting in the dominance of ideas of personal responsibility. Social insurance has become a compromise between the idea of personal responsibility and the need for social protection, which corresponds to the principle of solidarity and individual responsibility for one's life. The effectiveness of social insurance as a universal mechanism of social protection is due precisely to the fact that the initial contradictions between the individual and social principles are removed in social insurance.
Further development of an industrial society and its transition to a post-industrial one led to an increase in social risks that do not depend on a person - poverty, unemployment, economic crises and defaults, the world division of labor, etc. If the concept of "poor" meant the state of an individual, then poverty (pauperism) was already a massive social phenomenon.
In these conditions, solidarity becomes the main source of social protection, absolutes the principle of solidary social insurance and, in the course of a further increase in independent social risks, replaces the insurance principle with compensation for damage through the social tax.
The growing opposition of solidarity and insurance in modern conditions is also associated with an increase in the proportion of persons who are not payers of contributions, but receive social support, that is, there is no division of responsibility.
Under these conditions, the principle of solidarity becomes asymmetrical. Recipients of social pensions who have never paid contributions to the pension fund are provided with assistance, donations from the payers. The question remains: to what extent do the payers themselves agree with this? In this case, we are once again faced with a situation where the state as a government takes on the function of redistribution in order to implement the principle of universal accessibility of social protection. In this case, in the welfare state, the principle of solidarity of citizens is replaced by the principle of solidarity between the state and the individual. This solidarity realizes the natural human right to social assistance, which cannot be satisfied otherwise than by the state. That is, as in the case of distributive justice, the welfare state takes on the function of a mediating link of solidarity, acts as a mechanism to compensate for objective inequality.
Solidarity as a type of social rights is also associated with the concept of duty in relation to individuals on the part of society. For example, this phenomenon was formed for the first time in 1792 in France as assistance to the families of the defenders of the homeland, later this duty of society, symmetrical to the right of a citizen to receive recognition for fulfilling his public duty, became the basis of the policy of state assistance without reference to the real needs of people. This type of solidarity is also associated with the solidarity of the citizen and the state and is essentially political, not social, solidarity. The problem is that mixing, not separating, the two types of solidarity relations citizen - society (other citizens) and citizen - state (government) creates a conflict between society and government, which destroys the foundations of solidarity as a principle.
In some countries, civil rights also act as solidary rights. First of all, this applies to the norms of civil law for damages.
In contrast to the proper social rights arising from the laws of life in society, the right to compensation is based on the philosophy of individualism. Therefore, the spread of this model is closely related to the level of liberalism in a particular country and is most widespread in the United States.
The central figure in compensation for damage is victim(victim). Based on the principle of commutative justice, the victim is compensated for the damage caused to her and thereby strives to achieve an equitable distribution. Only having achieved recognition of himself as a victim, a person acquires social rights and can claim compensation.
At their core, the concepts of “victim” and “compensation” relate to civil law and are derived from the concept of “responsibility”.
In the context of the application of this principle (which in the specialized literature can be referred to as the principle of victimization), the criterion for the provision of social assistance is the recognition of the status of a victim for a certain minority, followed by the provision of budget transfers. A typical example of the implementation of this principle in the social policy of the Russian Federation is social payments to the participants of the Chernobyl accident. The basis for obtaining victim status can be not only events in the present, but also events in the past. An example is the provision of benefits to victims of political repression or juvenile prisoners of fascism.
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Tatiana Mikhailovna Apostolova, Nikolay Rudolfovich Kosevich
Social policy of the Russian Federation and the legal mechanism for its implementation
List of abbreviations
1. Normative acts
Civil Code, Civil Code of the Russian Federation - Civil Code of the Russian Federation;
Code of Civil Procedure of the Russian Federation - Civil Procedure Code of the Russian Federation;
ZhK - Housing Code of the RSFSR;
Administrative Code of the Russian Federation - Code of the Russian Federation on Administrative Offenses;
Tax Code of the Russian Federation - Tax Code of the Russian Federation;
SK, SK RF - Family Code of the Russian Federation;
Labor Code of the Russian Federation - Labor Code of the Russian Federation;
Criminal Code, Criminal Code of the Russian Federation - the Criminal Code of the Russian Federation;
FZ - Federal Law of the Russian Federation.
2. Official publications
BNA - Bulletin of Normative Acts of Federal Executive Bodies;
RF Air Force - Bulletin of the Supreme Court of the RF.
Air Force of the USSR, RSFSR, RF - Vedomosti of the Supreme Soviet of the USSR, RSFSR, Vedomosti of the Congress of People's Deputies and the Supreme Council of the RF (USSR, RSFSR);
RG - "Rossiyskaya Gazeta";
SAPP RF - Collection of acts of the President and Government of the Russian Federation;
SZ (USSR) RF - Code of Laws (USSR) RF;
SP (USSR, RSFSR, RF) - Collection of resolutions of the Council of Ministers (Government) (USSR, RSFSR, RF).
Theoretical foundations of social policy
Foundations of the theory and methodology of social policy
§ 1. Subject and objectives of the course "Social policy". Main directions of social policy
The main goal of human social activity is to improve living conditions. Since people in economic life are closely related to each other, changes in the living conditions of an individual, primarily economic, cannot occur in isolation from changes in this area in other individuals. In the XX century. in economically developed countries, the most widespread are concepts that entrust the state with the task of ensuring a certain standard of welfare. The theory and practice of the "social market economy", which include broad social activities carried out by the state, have gained particular popularity.
The Constitution defines the Russian Federation as a social state, “whose policy is aimed at creating conditions that ensure a dignified life and free human development. The Russian Federation protects the work and health of people, establishes a guaranteed minimum wage, provides state support for family, motherhood, fatherhood and childhood, disabled people and the elderly, develops a system of social services, establishes state pensions, benefits and other guarantees of social protection "(Art . 7).
One of the most important functions of the state is the development and implementation of social policy, which serves as an element of social cohesion, focused on serving this society, ensuring social security, and meeting the needs of the population. Contrary to these tasks in our country, the implementation of social policy often proceeded according to the so-called "residual principle". Such a misunderstanding of the essence and direction of social policy was, as a rule, either a consequence of an incorrect assessment by the authorities of priorities in the system of state functions, or a banal lack of funds for a qualitative solution of the main tasks of social protection and support of all categories of the population.
The most ambitious task of the socially oriented economy of the state in the emerging market economy of our country is the activity on social protection of all layers of society and on the development of an effective social policy strategy that covers all spheres of economic relations in the country. One of the most important directions of the state's activity is the regulation of employment and the stimulation of highly qualified and productive labor and, as a result, an increase in the national income.
In the course of the recent transformations, society gradually comes to realize the urgent need for the priority development of social policy, without which it is impossible to create normal conditions for a person's life, to at least fully use his intellectual and professional potential.
The social policy of the state forms the following structure:
Social policy is a system of measures carried out by state structures, public organizations, local governments, as well as labor collectives aimed at achieving social goals and results related to increasing social welfare, improving the quality of life of the people and ensuring socio-political stability, social partnership in society.
Social policy is formed taking into account the specific historical conditions of the country. The main directions of social policy, reflecting its specificity are:
1. Population income policy (standard of living, consumer basket, welfare).
2. Policy in the field of labor and labor relations (wages, labor protection and social insurance, employment of the population, etc.).
3. Social support and protection of the disabled and low-income strata of the population (pensions, social services, social guarantees, etc.).
4. The main directions of development of social sectors (health care, education, science, culture, physical culture and sports).
5. Socioecological policy.
6. Policy in the field of modern infrastructure (housing, transport, roads, communications, trade and consumer services).
7. Migration policy (forced migration, protection of the rights and interests of compatriots abroad, external trade migration).
8. Policy in relation to certain categories of the population (family, policy in relation to children, women, policy in relation to the elderly and disabled, etc.).
The creation of social policy is essential for the formation of social policy. regulatory ba shl. In the Russian Federation, a constitutional and legislative framework is being formed, reflecting the activities of all branches of government to regulate social relations in the country and regulate social assistance to the population. The most complete picture of the legal protection of the social interests of various groups of the population, of the organization of specific assistance and social support is provided by documents delimiting the powers of federal and regional authorities. So, federal authorities adopt legislative and regulatory acts governing the general principles of social policy in the Russian Federation; establish a unified system of minimum social guarantees in the field of wages, pensions, benefits, scholarships, medical care, education, culture; develop targeted social programs; form off-budget state funds. They determine the conditions and procedure for compensation of monetary incomes and savings of the population in connection with inflation, etc. Regional authorities develop and implement regional laws and social programs, ensure the functioning of social infrastructure institutions, develop areas of targeted social assistance and plan infrastructure development, determine housing policy, education, health care, etc.
The course "Social Policy" sets the task of studying the essence, basic principles and categories of social policy, its relationship with social security and social work, as well as the legal aspect of conducting social policy measures.
Subject of the course "Social Policy" includes: 1) issues of social relations in society, their changes in accordance with changes in the state; 2) issues of differentiation of the structure of the population and, as a consequence, the activation of targeted social support for various segments of the population; 3) the legal framework, those laws (legislative drafts) and bylaws on the basis of which social protection of citizens of the state is carried out or should be carried out.
Consideration of social policy is advisable to start with the concept "Social security". This refers to both the safety of the individual and the entire society as a whole.
Structure social security can be the following chain of interrelated components:
Social security social state social policy social work.
The feeling and state of security is one of the basic needs of a person and the most important condition for his individual and social existence and development.
Social security system includes:
Traditional aspects of military security (protection against possible external armed aggression), political or state security (protection of the existing system and form of power);
Aspects of economic security (the level of development of industry and agriculture sufficient to meet the needs of society);
Environmental safety (protection from natural and anthropogenic destructive forces and harmful consequences of disruption of the natural balance);
Population and health safety (inextricable link between biological bases human body and the social conditions of its existence), etc.
Social security is considered, first of all, as a person's ability to satisfy their needs, to combine individual and public interests. It is achieved when a decent standard of living of the population is ensured, reflecting the degree of satisfaction of the first material and spiritual needs of a person. This optimal level is made up of several components: the size of real per capita income, the amount of goods consumed and services used, the established prices for goods and services, the provision of housing, the availability of education, medical, cultural services, environmental safety, etc.
A welfare state is a state whose policy is aimed at creating conditions that ensure a dignified life and free development of a person, that is, at the realization of social success and security of a citizen (Article 7 of the Constitution of the Russian Federation).
The concept of the welfare state took root in Western Europe under the influence of two main factors: as a result of the Second World War and as a manifestation of disappointment in liberal theory social process.
1. Liberal(or limited) welfare state. The state through the budget finances the “sources of subsistence” (benefits) of the low-income part of the population. The rules for granting benefits are quite strict, the benefits are small, and the authorities are trying to find jobs for able-bodied recipients - to transfer them from benefits to wages. The traditional example is the United States, in the recent past - the UK, Canada and Australia.
2. Conservative(or corporate) welfare state. The state acts as the guarantor of social security, and it is financed through various insurance funds. The level of social security depends on the length of service, wages etc. A work that is especially important for the state, for example, a civil service, is often rewarded with certain benefits, most often in terms of pensions and medical care. Classic example- Germany. In general, this is the most widespread type of welfare state in Europe.
3. Social Democratic welfare state. Its legal basis is equal social security for all citizens. Full employment policy is an important part of government policy. If the social security system is sufficient to maintain the well-being of citizens, then it is very expensive. Therefore, either you have to keep taxes at a very high level, as in Sweden, or create a two-tier system in which the minimum level of welfare is provided by the state, and on top of this there may be a pension or benefit from an insurance fund or other source.
The welfare state cannot exist and develop without a political doctrine, economic model and financial support for its development.
Today the main parameters of a welfare state of any type are:
"one. Developed system of social insurance contributions and high level taxes that form the budget and the size of budgetary contributions to the social sphere.
2. Developed system of services and social services for all groups of the population.
3. A developed legal system, where the separation of powers is carried out, a clear implementation of the functions of each branch of government; a regulatory framework for social work, interaction between government bodies, civil society and private initiatives has been worked out. "
The thesis that the Russian Federation- the welfare state, as already mentioned, is enshrined in Art. 7 of the Constitution of the Russian Federation. It states that the policy of the state "is aimed at creating conditions that ensure a dignified life and free development of a person." This makes it generally accepted and obvious to state that the welfare state must ensure:
1. Social justice.
2. Overcoming social inequality.
3. Providing each source of livelihood (work or other forms of employment).
4. Providing in society conditions for maintaining peace and harmony, the formation of tolerant attitudes.
5. Creation of prerequisites for the formation of a favorable living environment for society.
In market conditions, when many economic problems are solved on the basis of the principle of self-regulation using price and monetary mechanisms, the social functions of the state acquire exceptional relevance.
TO functions of the welfare state can be attributed:
socially just distribution of public property with an increase in the interest of the individual in his work and its results and the creation of conditions for the development of a multi-structured economy;
development of conceptual foundations of a strategy for the social development of society and the state and corresponding to these tasks of socially-oriented legislation, the legal framework of social policy, the creation of comprehensive and targeted social programs and the definition of their priority tasks;
allocation of resources, necessary for the successful implementation of the outlined programs of social development, the formation of an effective system of social management at all levels of government, the solution of issues of staffing of bodies and structures of state leadership;
creation of spiritual, ideological, moral mechanisms for the implementation of social policy, the implementation of information support for this implementation, the organization of cooperation of social institutions of the state with various public organizations, political parties and movements that are serious about solving social problems, implementation of international cooperation in the social and humanitarian sphere.
The basis of the welfare state is civil society. Its essence is not only law-abiding people, but also their dignity, the ability to value and defend the rights of the individual. The historical experience of our country and other states testifies: where the potential of civil society is weak, preconditions for voluntarism and totalitarianism, for curtailing the social functions of the state, inevitably appear. The absence of a rationally structured civil society, a democratic legal political system is fraught with the danger of an unpredictable social policy, a sharp social stratification of members of society, a total decrease in the level of personal, social and national security.
The structural element of social policy is also social work, the essence of which is largely determined by self-help, the manifestation of civic initiatives, the development of their own resources, inherent in an individual or a group of people. The main goal of social work is to increase the degree of independence of the individual, to develop his skills and abilities to independently build his life and solve emerging problems.
V the course of social policy is decided a number of tasks:
A shift in priority in solving social problems from the state, directly to a person who realizes the need and importance of social self-protection and makes every effort to this within the framework of social and legal legislation;
Creation of circumstances in which citizens could make the most of all opportunities in ensuring their social well-being to the extent that the law allows it;
Creation of conditions under which a person, in spite of any life circumstances (be it disability, difficult financial situation or psychological crisis), will be able to live, maintaining self-esteem and respect for himself from the side of society.
Thus, social work is an integrated, universal type of activity, the main goal of which is to satisfy the socially guaranteed interests of the individual, as well as the needs of various (primarily, less socially protected) strata of society.
Control questions
1. Subject and objectives of the course "Social policy".
2. The main directions of social policy.
3. Give a definition to the concept of "social policy".
4. Give a definition to the concept of "social partnership"
5. Give a definition of the concept of "social security
6. What is included in the social security system?
7. Give a definition to the concept of "welfare state".
8. The main parameters of the welfare state.
9. Types of the welfare state. 10. Functions of the welfare state.
Literature
1. Grigorieva IL. Social policy and social reform in Russia in the 90s. SPb., 1998.
3. E. I. Kholostova Social policy: Textbook. allowance. M. 2001.
Essence and principles of social policy
§ 1. Formation and development of social policy. The essence and main goals of social policy
Reforming public life deeply affects not only the mechanism of managing society, but also the entire complex of interests of the individual, labor collectives, classes, nationalities, social and professional groups and strata of the population. Among the factors contributing to the harmonization of the interests of the individual and society, guaranteeing the protection of the interests of a person, his rights and freedoms, a special place belongs to social policy. The dialectical relationship between social policy and social work reveals their commonality and differences, their significance in the realization of the needs and interests of people.
What is meant by politics in general and under social policy in particular? Politics- it:
Relations between groups, classes, states regarding the conquest, preservation and consolidation of power;
The system of activity in various areas of public life: in the economic sphere, in the social sphere, spiritual life, military sphere, etc.;
Practical activities to implement the political course, to achieve political goals;
Participation in power relations of citizens, politicians, public organizations;
The art of working with people, the ability to take into account and express their interests, opportunities, psychological, professional and other qualities.
The central subject of politics is the state. An inalienable attribute of the state is a system of power that provides it with the opportunity and ability to exert a decisive influence and influence on the life of people, on their behavior in society through authority and law. The most important essential feature of politics is that it appears as a form of integration, generalization of the interests and will of social groups or society as a whole.
Social policy is an integral part of the internal policy of the state, embodied in its social programs and practices and regulating relations in society in the interests and through the interests of the main social groups of the population. Since any social programs are only a declaration, if they are not provided economically and are not supported materially, then social policy in this sense is secondary to the economy both in terms of content and objectives. However, this does not mean its secondary importance in the development of society, its material and spiritual culture. It is in the social sphere that the results of the economic, economic activity society, its effectiveness and ability to meet the interests and needs of people are tested. In the social sphere, the degree of humanity of the state policy is vividly reflected. The more significant it is, the more clearly the humanistic essence of the direction of social development.
The term "social policy" has a rather late origin. However, throughout the history of mankind, certain variants of social policy were developed by various types of society and implemented in the activities of different states. They were based on the idea of a just society, formed by morality and religion and enshrined in tradition. We can say that a certain social policy was rather a consequence than the goal of the activities of certain states and their rulers.
In ancient times, scientists from various schools (Plato, Aristotle) recognized that the task of the state is to take care of its inhabitants.
Thinkers of the modern era, among them T. Hobbes, I. Kant, G.V.F.
Most researchers shared the point of view that was expressed in a generalized form by O. Heffe: “If a human community wants to have a legitimate character, then it must: Firstly be of a legal nature; Secondly, law must acquire the quality of justice and, third, fair law must be protected by the public order - and therefore, take on the appearance of a just state ”.
At the end of the XIX century. a group of German scientists unites in the "Circle of Social Policy", which aims to study politics and economics from the standpoint of sociology. In particular, W. Sombart noted that the observational theorist-sociologist "seeks to introduce meaning, unity and system into the confusion of individual political events, distinguishes between groups of homogeneous and heterogeneous undertakings, and comes to the need to establish the concept of social policy."
Subsequently, the concept of social policy is investigated in the context of the concept of a social state. Since the types of these states and their ideological complexes differ from each other, it is natural that the understanding of social policy among representatives of various schools of social thought differs significantly. It is important that almost all authors are unanimous in the opinion that the modern state must necessarily implement social policy... The idea of the need for conscious management of social processes is taking root, and social technologies are emerging.
The state becomes social, the population of which shares modern humanistic values. Such a state is characterized by the recognition of its own "zone of responsibility" of both individuals, families, communities, and the authorities. Another feature of this approach is recognition of the obligations of the state to citizens. First of all, this is a fair distribution of citizens' income through taxes and social programs. The mechanism for realizing the goals of the welfare state differs in accordance with the dominant ideology and is embodied in social policy.
Ideological foundations of social policy states are embodied for its purposes, are expressed in the type of this social policy and originate in the socio-cultural and religious traditions of the given society.
Domestic researchers relatively late turned to social policy as a special subject of scientific consideration. The definitions of this concept, its understanding, constituent elements, etc. differ.
Summing up all point of view, it is possible to define social policy as a purposeful activity of the state, aiming at mitigating contradictions between participants in economic (market) relations and preventing social conflicts.
The boundaries of social policy include a wide range of issues related to the life of individuals and society. The field of social policy extends from a policy aimed at ensuring the survival and maintaining the vital activity of the weakest members of society, to ensuring the functioning and development of society as a whole. The goal of social development is society itself, an increase in opportunities social realization for all individuals, regardless of their origin, social status, physical characteristics or intellectual abilities. Therefore, social policy modern society, as a rule, is aimed at increasing the degree of freedom of individuals, expanding the possibilities of their choice, realizing the potential for self-development.
In this way, the main goals of Russian social policy in the present stage are:
Maximum preservation of the physical, intellectual, spiritual potential of the country; on the formation of labor motivation that meets the requirements of the legal market, focused on the positive expanded reproduction of "human capital" in Russia, because without this the economic recovery will not begin, there will be no effective economy, no full-fledged market;
Creation of institutional, socio-economic, legal prerequisites for the realization by citizens, various social strata and groups of the population of their needs and interests, the manifestation of their activity and the disclosure of their personality; without this there will be no prerequisites for the development of civil society, personal freedom, and real democracy. It is well known that social policy is a costly and costly sphere of government activity. The more ambitious a social policy is, the more significant goals it sets for itself, the more funds should be allocated for its implementation. Ultimately, however, investment in social policy is the most justified investment of social wealth.
Fundamentals of Social Policy: Textbook
Edited by V.I. Zhukova
MINISTRY OF EDUCATION AND SCIENCE OF THE RUSSIAN FEDERATION RUSSIAN STATE SOCIAL UNIVERSITY
UMO of Russian universities on education in the field of social work as a basic textbook for students of higher educational institutions
for the course "Fundamentals of Social Policy" was developed and published within the framework of the scientific school of the academician of the Russian Academy of Sciences, the founding rector of the Russian State Social University V.I. Zhukova
"RUSSIA IN THE GLOBAL SYSTEM OF SOCIAL COORDINATES: HISTORICAL AND SOCIOLOGICAL COMPARATIVISM".
Editorial Council:
T.A. Golikova, Yu.V. Gertiy, O. Yu. Golodets, V.Ya. Doroshenko, S.V. Ivanets, A.K. Isaev, I.I. Kalina, V.I. Lagunkina, A.A. Levitskaya, S.Yu. Orlova, V.A. Petrosyan, O. V. Samarina
Academician of the RAS V.I. Zhukov (leader); Dr. ps. D., prof. L.G. Laptev; Dr. Philos. D., prof. G.I. Avtsinov; Dr. eq. D., prof. A.B. Berendeeva; dr honey... D., prof. Yu.A. Blinkov; Cand. ist. D., associate professor M.V. Bryantsev; Dr. eq. D., prof. ON THE. Volgin; Dr. eq. D., prof. Yu.P. Voronin; Cand. social n. Yu.V. Hertius; Dr. East D., prof. R.G. Gostev; Dr. East D., prof. S.R. Gostev; Dr. East D., prof. T.A. Dubrovskaya; Academician of the Russian Academy of Natural Sciences, Dr. D., prof. S.V. Kalashnikov; Dr. eq. D., prof. ON THE. Karnaukhova; Cand. Philos. D., associate professor S.I. Kosov; Dr. Philos. D., associate professor L.N. Kochetkova; Cand. ps. n. I.L. Laptev; Dr. Sots. D., prof. M.L. Malyshev; Dr. watered, n., prof. M.Yu. Martynov; Dr. watered, n., prof. O.A. Nesterchuk; Dr. Sots. D., associate professor K.N. Novikov; Dr. Philos. D., prof. IN AND. Patrushev; Dr. East D., prof. G.G. Provadkin; Dr. watered, n., prof. I.S. Savchenko; Dr. East D., prof. E.N. Tarasov; Dr. ped. D., prof. L.V. Fedyakin; Dr. ped. D., prof. V.A. Fokine; Dr. Sots. D., prof. N.P. Shchukin; Cand. polit, n., associate professor V.V. Yudaev.
Reviewers:
G.V. Osipov- Academician of the Russian Academy of Sciences
A.A. Derkach- Academician of the Russian Academy of Education
P.D. Pavlenok- Doctor of Sociological Sciences, Professor
Foreword
The textbook "Fundamentals of Social Work" occupies a special place among the basic textbooks on social work. It largely reveals the ideological component of the scientific school "Russia in the global system of social coordinates: historical and sociological comparative studies", which to me, as an academician of the Russian Academy of Sciences, Chairman of the Educational social university, it was a great honor to head. Within the framework of the scientific school, modern achievements of social science, innovative strategy and practice of training competitive specialists for the social sphere and their effective self-realization in the chosen sphere of work are analyzed.
In this context, it seems relevant to understand that the global processes developing in the world cannot be regarded as a phenomenon of modern times. The progressive development of mankind is characterized by the expansion and deepening of ties between different territories, regions and countries. Global processes as a phenomenon are not new and original. The principles of universal communication and interaction are inherently global and operate in all spheres of society, going far beyond national boundaries, ethnic, geographic and other differences. With the development of production, trade, transport, the discovery of new lands, spheres of social practice and knowledge, the technology for the realization of the vital interests of countries and peoples forced them to move not only in an "original way", but also to look for their place in the general highway movement of mankind.
In the global system of social coordinates, the position of a Person is determined by three parameters: the attitude to the means of subsistence, the environment and to their own kind. In each of these areas, progress towards social harmony is becoming increasingly problematic. Property differentiation and the resulting social inequality are characteristic both for individual countries and for the entire civilization. Between Man and Nature there are no signs of harmony, or the desire of "Homo sapiens" to be grateful to the environment. The attitude of the subjects of civilization to each other is even more uncomfortable. Nowadays hardly anyone can say what distance separates, for example, the “war of cartoons” from the “war of civilizations”.
In the 21st century, both advantages and disadvantages have acquired a global character. On the one hand, a single information space, world communities is being created, on the other, terrorism is becoming a global phenomenon, large-scale explosive upheavals like the “color revolutions” or the Middle East “democratic tsunami”. Both trade and the shadow economy have become global. The number of those who pay taxes is not more, but less than those who evade them. The law enforcement systems of the world are in solidarity, but Interpol is no stronger than the international mafia, criminal syndicates, drug lords who have created a network of the global drug business. The avalanche of progress has created an avalanche of problems as well. Thus, global information generates massive disinformation; continental population explosions entail gigantic and uncontrolled migration; the latest technology is turning skilled workers into an army of social outcasts.
The world community is a space filled with rather sharp ones that do not have generally recognized mechanisms for resolving contradictions. The main one is the discrepancy between the colossal changes in the world community and the traditional norms of behavior of individual countries, primarily those who claim leadership. The existing legal equality of nations no longer ensures the national sovereignty of all subjects of international law.
One of the alarming most important contradictions in global development is the discrepancy between the increased degree of interdependence of elements of the world order and the growing influence of destabilizing factors on this dependence. In a situation where this contradiction is resolved by force, a response is provoked in various forms, including in the form of terrorist attacks. Sharp contradictions between countries, military-political and other alliances are complemented by large-scale internal crises, difficulties, conflicts emerging at the poles of poverty and luxury, racial hatred and religious hostility, demographic explosions and depopulation of the population in many countries.
Civil society as the main result of the democratization of public administration and public life is measured by national-state parameters. The globalization of international life, real practice and ways of achieving global goals significantly affect the internal development of any modern country without exception. On the one hand, globalism erodes the nation-state structure, culture, values and gives rise to another contradiction - the discrepancy between the national-state parameters and the interests of transnational corporations. On the other hand, globalism revives the confrontation between democracy and authoritarianism and determines the need for a particular country to harmonize relations with other countries and peoples.
Taking into account the geopolitical and geosocial needs, the state and peculiarities of the internal development of Russia, the development and implementation of a new system of social policy, the implementation of which will raise the national human factor to the level of the modern challenge and the needs of man and society, is currently among the priority national interests. Social policy in Russia as a whole and at the level of the region, the municipality can be effective only if it is formed on the basis of a systematic approach. As a criterion for the competitiveness of social policy, the stability of the social system of the entire Russian society, which satisfies the vital needs of a particular person, can be used. An important role in the implementation of social policy is assigned to the governing bodies, which must take into account and satisfy the socio-economic needs of the whole society, a specific territory, a specific person.
The basis of social policy is activities to develop social infrastructure and social structure, to ensure conditions for the life of a person and society. The purposeful impact on the process of physical and spiritual development of a person largely depends on the resource potential of the social sphere. The main role in the development and implementation of programs for the development of the social sphere is assigned to the legislative and executive authorities, which are designed to ensure a balance of interests of various social groups and strata of society, harmonize the interests of government, business and the local community, prevent and eliminate emerging social deformations, strive for social stability in all regions of Russia.
The first textbook in Russia on this discipline, considering theoretical, methodological and practical issues of the essence, content, formation, implementation, information, personnel and financial support of social policy, reforming and development of social sectors (education, health care, culture, housing and communal services, tourism, physical education, sports, health resort industry and others) and social and labor relations (labor market, employment, unemployment, wages, social insurance, pension system, etc.), as well as demographic and migration processes, socio-economic situation the main social groups of modern Russian society (children, disabled people, women, youth, military personnel and others). For university students, graduate students, students of the system of professional retraining and advanced training, teachers of disciplines in economic and non-economic specialties, in particular, "State and Municipal Administration", "Labor Economics", "Social Work" and others.
SECTION I. THEORETICAL AND METHODOLOGICAL FOUNDATIONS OF SOCIAL POLICY
Chapter 1 SOCIAL POLICY AS A SOCIAL THEORY AND PRACTICE. SOCIAL AND LABOR SPHERE - THE BASIS OF SOCIAL DEVELOPMENT AND SOCIAL POLICY
Chapter 1.2. ESSENCE, CONTENT AND OBJECTIVES OF SOCIAL POLICY
Chapter 1.3. SOCIAL STRUCTURE OF SOCIETY (STRATIFICATION). REGULARITIES, CRITERIA AND TYPES OF SOCIAL GROUPS
Chapter 1.4. SOCIAL TRANSFORMATION AND SOCIAL SECURITY
Chapter 7.5. THING; OBJECT AND SUBJECTS OF SOCIAL POLICY
Chapter 1.6. ROLE OF THE STATE IN SOCIAL POLICY. FEATURES OF THE STATE AS A SUBJECT OF SOCIAL POLICY AND ITS CONSTITUTIONAL DUTIES IN THIS SPHERE
Chapter 1.7. NON-STATE ENTITIES - INSTITUTIONS OF SOCIAL POLICY
Chapter 1.8. STRATEGY AND PRIORITIES OF SOCIAL POLICY IN THE RUSSIAN FEDERATION AT THE PRESENT STAGE
Chapter 1.9. FEATURES AND PROBLEMS OF THE REGIONAL SOCIAL POLICY IMPLEMENTATION
Chapter 1.10. THE PROBLEM OF POVERTY AND WAYS TO SOLVE IT
Chapter 1.11. SOCIAL POLICY AS A SYSTEMIC SOCIAL TECHNOLOGY
SECTION II. ECONOMIC AND SOCIAL AND LABOR FRAMEWORK OF SOCIAL POLICY
Chapter 2.1. PROBLEMS OF LABOR LAW REFORM
Chapter 2.2. LABOR MARKET ITS FUNCTIONS
Chapter 23. EMPLOYMENT OF THE POPULATION
Chapter 2.4. UNEMPLOYMENT: SOCIO-ECONOMIC CONSEQUENCES, MAIN TYPES, WAYS OF REDUCTION
Chapter 2.5. PROBLEMS OF REGULATION OF REMUNERATION AND WAYS OF THEIR SOLUTION IN MODERN CONDITIONS
Chapter 2.6. LABOR PRODUCTIVITY AS AN ECONOMIC FRAMEWORK FOR SOCIAL POLICY
Chapter 2.7. SOCIAL SECURITY SYSTEM AND THE PROBLEMS OF ITS REFORM
Chapter 2.8. THE PENSION SYSTEM AND ITS REFORM IN THE RUSSIAN FEDERATION
Chapter 2.9. LABOR SAFETY: FORMATION OF A NEW STATE POLICY DOCTRINE
Chapter 2.10. WAYS TO STABILIZE AND INCREASE THE STANDARDS OF LIVING IN RUSSIA
Chapter 2.11. PROBLEMS OF DEMOGRAPH AND POPULATION POLICY
SECTION III. STATE POLICY AND STRATEGY FOR REFORMING SOCIAL SPHERE INDUSTRIES
Chapter 3.1. STATE POLICY IN EDUCATION
Chapter 3.2 STRATEGY AND PRIORITIES OF HEALTHCARE DEVELOPMENT
Chapter 3.3. PROSPECTIVE WAYS TO REFORM SOCIAL PROTECTION IN VILLAGES
Chapter 3.4. MODERN COOL TOUR POLICY IN RUSSIA
Chapter 3.5. STATE POLICY AND STRATEGY FOR REFORMING PHYSICAL CULTURE, SPORT AND SANA TORNO-SPA