State social policy regarding students. Mechanisms of social management in solving social problems of students. Strategy for modernizing social policy
I sympathize with the RCP (b), since it gave me the opportunity to study at a university..." Social support and control of students at Kazan University in the 1920s Guzel Amalieva The October Revolution of 1917 was a turning point in the history of Russia, characterized by fundamental changes in the social and political structure of society. These changes could not but affect the lives of students at Kazan University. The students of the 1920s - subsequently the new Soviet intelligentsia - were the first Soviet generation of youth who were destined to become builders of a “bright communist future.” The study of the social policy of the Soviet government regarding students in the first years after the October Revolution of 1917 is of particular interest, since reveals the problem of the relationship between students and the authorities, characterizes the strategies and practices of students’ survival in new political conditions. In addition, using this example, we can better understand how the Soviet government saw the ideal “red” student.
Research on the history of youth and students was carried out in domestic science using such historical sources as legislative documents, statistics, journalism, private correspondence, and memoirs. We believe that a holistic view of the situation that developed in Russia in the first years after the October Revolution is possible not only through new approaches to sources already introduced into scientific circulation, but also through the inclusion of new types of sources, including those previously insufficiently involved office documentation. Such materials include a set of personal files of students of Kazan University (1917-1925), which is located in the Department of Manuscripts and Rare Books of the Scientific Library named after I. I. Lobachevsky of Kazan State University (ORRK IBL KSU), Archive personal files of students of Kazan University 1917-1925 ORRK NBL KSU includes 9,435 storage units as part of fund 22. A personal file (dossier) is a set of documents containing information about the employee. At Kazan University, personal files were opened for everyone who wrote an application for enrollment as a student at this university. A personal file was opened for the applicant at the time he submitted his application to the admissions committee and upon provision of all necessary documents. Then the documents went to the student affairs office and were compiled into a personal file. Newly received documents were filed with the old file. Thus, the process of forming a file continued throughout the entire period of student study. Various documents were included in the personal file: birth certificates, education certificates, identity cards, health certificates, and information about military service. The last document of the completed case could be a certificate of graduation from the university or an application for exclusion from the number of students of Kazan University with or without an indication of the reason. Student youth: social background and scholarship The Decree “On the Rules for Admission to Higher Educational Institutions” was adopted by the Council of People's Commissars of the RSFSR on August 2 1918, In accordance with this law, free admission to the number of students of all comers who have reached the age of 16, regardless of gender and class, was introduced. University administrations were prohibited from asking applicants for school graduation documents, except for documents proving their identity and age. Entrance exams were cancelled, co-education was introduced and fees were abolished. For violation of the decree, all responsible persons were subject to trial by revolutionary tribunals [Narodnoe... 1974. P. 403]. As a result of the implementation of this decree, the class composition of students at Kazan University changed (ill. i). The doors of the university opened to people from the worker-peasant environment; in 1918, 3,744 people were admitted to the university, of which 574 were workers [History, 1954. S. yub]. When entering the university, the class affiliation of students acquired exceptional importance, since entrance exams were cancelled. The policy of the Soviet government towards students was aimed at proletarianizing its composition and providing support to people from the proletariat and the poorest peasantry [Postnikov, 1996. p. 109], which was reflected in the propaganda posters of this era (see ill. 1). Therefore, already in 1918, certificates of social origin began to appear in the personal files of Kazan University students. In the personal file of student O. M. Gracheva we find a certificate issued in 1918 stating “that she is, indeed, the daughter of a peasant.” One of the necessary conditions for a directed change in the social composition of the student body was a state scholarship. Beginning in August 1918, the Council of People's Commissars began to provide financial assistance to students, providing them with scholarships and food rations. In 1918, the Student Welfare Commission distributed scholarship funds regardless of class origin. In January 1919, the All-Russian College for Social Security and Labor Service of Students, 1ORRK NBL KSU, was created. F. 22. Unit. hr. 1980. L. 27. At Kazan University there was a special commission on social security and labor service, which worked to find means of supporting the lives of students, distributed scholarships and teaching aids, and managed dormitories and canteens. Only students with the “correct” social background began to receive scholarships. If before the revolution the reduction in allocations for scholarships was explained by the government’s attempts to protect the university from people from the poor classes, then in the 1920s the opposite trend was observed: attempts to support students from the proletariat and the poorest peasantry with the help of scholarships and to close the way to the university for the “undesirable” element. Students receiving scholarships were divided into two groups. The first category included those sent by the Communist Party, trade unions, proletarian organizations, factories and factories, rural communes, disabled workers and peasants from the Red Army and the First World War. They enjoyed dormitories, food allowances, and teaching aids. The second category included all students who worked in various institutions and enterprises, as well as doctors, veterinarians, technicians and agronomists in their first year of study. For them, the scholarship was set at half the amount. Students living on unearned income (that is, making a profit by renting out premises, land, or engaged in trade) were deprived of benefits [Chanbarisov, 1973. P. 221]. An applicant for a scholarship, in addition to the application, had to fill out a special “Questionnaire for determining university students for state scholarships." In the years 1918-1922 there was no single form for this document (only in 1923 a specially approved form appeared in a printed version). The main purpose of the appearance of this document was to record all stages of the life of a young man and determine his social origin and attitude to the new government. The student sought to win the favor of the authorities and for this he had to prove that he fit into the system of social relations supported by the Soviet state, into the ideas " those in power" about the ideal Soviet man. The qualities of the “ideal” Soviet person - loyalty and devotion to the Soviet government, political trustworthiness, as well as the “correct” social origin - were introduced into the consciousness of young people thanks to Soviet propaganda. The student’s attitude towards the new government, his loyalty should have been recorded by the following questionnaire questions: “Attitude to Soviet power" and "Which party do you sympathize with and why." Most students did not limit themselves to clear answers and wrote detailed messages, trying to demonstrate their ideological purity. “The attitude of a Komsomol member, this, I think, will say it all,” “I will put all my efforts into expanding Soviet construction and strengthening the power of Soviet power, which gave me the opportunity to enter higher school. Coming from a working-class family, I consider it my duty and obligation to help the Soviet government, as the true power of the working people, with all my strength" a, "I sympathize with the RCP (b), since it gave me the opportunity to study at a university" h. One of the proofs of loyalty was social origin: Students with a proletarian social background were more likely to become government scholarship holders than the children of the intelligentsia.Therefore, after October 1917, in order to receive scholarships, many nobles made attempts to hide their origins. One of the ways of such adaptation to new conditions was to indicate in the “social origin” column of the questionnaire the profession of the parents instead of the class [Chuikina, 2000. P. 172]. Thus, the information specified in the application forms for state scholarships was deliberately or unintentionally distorted. So, for example, a student M.L. Vinogradov in the questionnaire in the paragraph “Social status of parents” indicated that his father is a zemstvo doctor,” and in his matriculation certificate it is said that he is “the son of a hereditary nobleman from the village of Most, Ryazan province.” Student A. E. Efremova wrote in the questionnaire, that her father serves as an agent of the insurance company "Salamantra" 6, but from the extract from the register of births it is clear that her father is a “Kazan merchant son.” In student personal files, there could be several scholarship applications at the same time, since the list of scholarship recipients was revised every year. In the personal file of the student Z. A. Andreeva there are two similar questionnaires, written respectively in 1923 and 1924. 8. The direct distribution of scholarships at Kazan University was in charge of the Local Ogipendial Commission (LSC), and the approval of lists of those enrolled in scholarships and the consideration of complaints dissatisfied with the decision of the LSC was entrusted to the Central Scholarship Commission (CSC).To increase the chances of receiving a scholarship, it was necessary to obtain the consent of the student body, the commissions for recording academic performance and public works.1 ORRK NBL KSU. F. 22. Unit, storage. 1965. L. 4 - vol. 2 ORRK NBL KSU. F. 22. Unit. hr. 3348. L. 16 - vol. 3 ORRK NBL KSU. F. 22. Unit. hr. 54 - L. P. 4 ORRK NBL KSU. F. 22. Unit. hr. 1371. L. 10 - vol. 5 ORRK NBL KSU. F. 22. Unit. hr. 1371. L. 8.6 ORRK NBL KSU. F. 22. Unit. hr. 2686. L. 15.7 ORRK NBL KSU. F. 22. Unit. hr. 2686. L. 6.8 ORRK NBL KSU. F. 22. Unit. hr. 119. L. 39 and L. 44 - The decisions of MSC and CSK were usually unambiguous: “Enroll” or “Refuse”, but sometimes the reasons for making a particular decision were indicated. Student A.G. Vekshina was enrolled in a state scholarship in 1923, but then she was denied because she received help from the Votsk community to the Academy of Sciences. Alekseeva was denied a scholarship because “there is no public work, of non-proletarian origin,” 2. T. V. Belousova was refused admission to a state scholarship, because “there is no public work, of non-proletarian origin, she serves” h. Thus, the main reasons for refusals to enroll for a state scholarship were associated with “wrong” social origin, help from parents, relatives or government agencies, non-participation in public work, academic failure, and the presence of employment, considered by the commission as a source of income. The size of the state scholarship ranged from 8 to 20 rubles; this amount was revised upward annually, but never covered the student’s subsistence level. In May 1918, the price of bread in the Kazan province rose from 4 rubles 75 kopecks per pound to 12 rubles, and by July 20, 1918 it amounted to 8 rubles per pound [Vishlenkova, Malysheva, Salnikova, 2005* P. 1025]. The civil war and related hostilities sharply limited the size of sown areas and destroyed traditional communications, which, given the poor harvest, caused a terrible famine of 1921-1922. In 1918, instead of the general civilian ration, the so-called “class ration” was introduced. The population was divided into four categories according to social class and age and gender. First of all, workers employed in particularly difficult conditions, pregnant women and nursing mothers received rations. Students were classified in the third category. Students received about.6 pounds of bread and 0.2 pounds of meat or fish [Stepanov, 1997. P. 119]. One of the AL students. Avksentieva, answering the survey question “what means do you live on,” wrote: “I always need money, because I don’t have it, one student ration is not enough.” In the difficult economic situation for all students in 1922, the government announced the introduction of tuition fees in higher educational institutions, which placed a burden on the shoulders, first of all , non-proletarian students. Tuition fees were differentiated and depended on social origin. Students receiving scholarships and students of the 1ORRK NBL KSU were exempt from fees. F. 22. Unit. hr. 1313. L. 4 - vol. 2 ORRK NBL KSU. F. 22. dd. hr. 184. L. 4 - vol. 3 ORRK NBL KSU. F. 22. Unit. hr. 704. L. 6 - vol. 4 ORRK NBL KSU. F. 22. Unit. hr. 151. L. Yu.aofaka, communists and Komsomol members, workers of factories and factories, children of average and poor peasants [Postnikov, 1996. S. pb]. For students of all courses living on unearned income or who were dependent on persons living on such income, tuition fees were doubled. V. A. Berdnikov was assigned a fee of 50 rubles, which was later increased to 10 rubles, since he was “related to the merchant Savinovsky.” On the application to the commission for setting fees for legal studies, a resolution was put forward: “Find out whether he is related to Savinovsky - if so, then increase the fee to 10 rubles.”1 Thus, the appointment of a scholarship and the introduction of tuition fees were elements of the social policy of the Bolsheviks , aimed at the proletarianization of students and contributing to the fact that the most favorable conditions for studying at the university were for workers and peasants. It was the representatives of these classes who were destined in the future to become “red” specialists and join the ranks of the Soviet intelligentsia. Business trip to the university Along with the introduction of scholarships and tuition fees, elements of the Soviet government’s social policy regarding students include the creation of workers’ faculties (workers’ faculties) (ill. 2 ), the introduction of the principle of business trips to the university, the restriction of free admission, as well as “purges”. Unfortunately, the creation and activities of the workers’ faculty of Kazan University were practically not reflected in student personal files for the years 1917-1925, however, we note that it was given an important role in increasing educational level of those entering the university from families of peasants and workers (see Ill. 2).Other measures of class regulation in the personal affairs of students can be seen quite clearly.In 1921, the Agitprop Department of the Central Committee of the RCP (b), together with the Glavprovobra, approved new Rules for admission to higher education In contrast to previous years, the principle of business trips was introduced, rather than free admission to study. This procedure pursued one goal: to clear the path to the university as much as possible for workers and peasants and not to allow “undesirable” elements into the university walls [Markov, 2005. P. 95]. From now on, members of the Communist Party were accepted first, and persons recommended by various Soviet institutions, trade unions, and workers' faculty members were second. They were enrolled, essentially, without competition. Other citizens were accepted only if there were available places. The share of general education schools, former gymnasiums and secondary schools remained only 2-5% of places [Postnikov, 1996. P. 77].1 ORRK NBL KSU. F. 22. dd. hr. 751. L. 18. Since 1921, the presentation of travel certificates or mandates has become mandatory for everyone wishing to enter a university. Party and Komsomol organizations, trade unions, and Soviet institutions could send people to the university. Thus, at the direction of the Simbirsk Provincial Committee of the RCP (b), a member of the Adorat party organization, I. S. Gostkin\a EL, was enrolled at Kazan University in 1921. Vinogradov was sent to Kazan University by the Menzelinsky Canton Department of Public Education." The system of business trips to universities was abolished only in 1926-1927, but the principles of class selection of students for admission to the university still continued to operate [Postnikov, 1996. P. 81]. This measure was strengthened by the introduction of the “purges” procedure. Purges An important moment in the life of any student was going through Academic checks (re-registration) or, as they were called then, “purges”. Officially, they were supposed to rid the university of constantly failing students. Their real goal was to remove from universities those students whose social origin contradicted the general direction of the reorganization of higher education [Markov, 2005. P. 103]. A. Yu. Rozhkov - conducted the research1 ORRK NBL KSU. F. 22. Unit. hr. 1963. L. 15.2 ORRK NBL KSU. F. 22. Unit. hr. 1387. L. 2. History of students of the 1920s - identifies four waves of mass “purges” of students: 1922, 1924, 1925 and 1929 [Rozhkov, 2003. P. 197], The most powerful was the second wave of “purges” of 1924 of the year. It did not bypass Kazan University either. This is related to the appearance of another type of questionnaire in student personal files - the Questionnaire for students undergoing verification. When compiling it, emphasis was also placed on finding out the student’s social origin, his party affiliation, participation in public work, attitude towards the Soviet government and the reasons for academic failure. As a result of the “purge” of 1924, 387 students (19% of the total composition) were expelled from Kazan University [Kazan University, 1979. P. but]. One of the ways in which students tried to remove the dangerous stigma of a “socially alien element” was There were cases of renunciation of their parents if they had the “wrong” social origin. Usually renunciations did not achieve their goal, since social origin was considered an “objective” vice from which it was impossible to get rid of. Nevertheless, the authorities demanded that the children of the intelligentsia go through the renunciation procedure, and sometimes students came up with their own initiative [Fitzpatrick, 2001. P. 155]. Student Z. D. Aronova in 1924 wrote about her parents in a statement to the verification commission: “If a dark spot on my life was my origin (unconscious, of course!) from parents of clergy, then I dare to assure you that my parents could not have any influence on me, since I was cut off from my family from the age of 9. And From the age of 17 she began to live completely independently." Faculty of Medicine student O. A. Agenosova wrote in an application to the Central Scholarship Commission; “Having nothing in common with my parents at this time, I disagreed with their views; and last year I was discharged from the clergy and, as able-bodied and knowledgeable of agricultural peasant work, together with my brother were accepted into the society of peasants and allocated land; about which there is the proper paper from the executive committee. Thus, if you count by origin, then I am the daughter of a spiritual person. But in my current position and views I have nothing in common with this class; I consider myself a member of the peasant society."2. The actions of the Soviet government aimed at proletarianizing the university student body contributed to the growth of its worker-peasant stratum. In the 1923/24 academic year at Kazan University from 2,450 students were 277 workers (11.3%), peasants 843 (34"4%) [Kazan University, 1979. P. no]. ORRK NB KSU. F. 22. Unit. hr. 1. L. 20." ORRK NB KSU. F. 22. Item 81. L. 4. Socio-economic status of student youth; food and clothing Rations, coupons for free lunch and dinner in the student canteen (there were them in Kazan two) and places in the dormitory were primarily allocated to state scholarship holders, children of workers and peasants. The state assumed all expenses associated with their material support, as well as with the provision of housing, clothing and food. Students who did not have the opportunity to eat for free in the canteen ( who did not receive a scholarship) were forced to cook themselves. The diet of students at Kazan University in 1917-1925 was extremely poor: “boiled potatoes and a cup of tea, that’s all the food” S “I barely earn enough for my children to have enough bread (meat, sugar and fats have long been banished from my family’s everyday life)" 2, "...living on a scholarship, I often had to be half-starved, on only black bread." h. The food situation was so difficult that student L.I. Belyaev, after receiving a refusal to enroll in a state scholarship, called it “an eternal struggle for a piece of bread.” **Financial problems were also reflected in the students’ appearance. General impoverishment in mid-1918 forced the Soviet government to create a Department of ready-made clothes and linen at Centro-Textiles. The main task of the department was the distribution of finished clothing among the population, since clothing factories produced primarily military uniforms, and the shoe industry produced 7.5 times less products in 1921 than in 1913. Warrants for clothing were received by students - party members and Komsomol members sent by trade unions and receiving stipends. It was also extremely difficult to obtain clothes on a warrant, so most students at that time dressed according to the principle of “wearing what I have.” Clothing at this time lost its function of decorating its owner. On the contrary, it should have helped to get lost in the crowd, hide social affiliation, and, if possible, emphasize the owner’s loyal attitude to the Bolsheviks [Lebina, Chistyakov, 2003. P. 46]. The main thing in that difficult time was simply to survive, and from the pages of personal affairs requests for help are heard: “In terms of clothes, we only have what we are wearing, and in terms of linen, we have two shifts” 5, “One pair of shoes for two girls” 6, “I wore out the underwear and shoes that I purchased to the last possible extent.” on the meager teacher's salary last year, has long been in need of replacement: there is absolutely no outerwear" 7. 1 ORRK NBL KSU. F. 22. UNITS hr. 2686. L. 13.2 ORRK NBL KSU. F. 22. Unit. hr. 1371. L. 14.3 ORRK NBL KSU. F. 22. Unit. hr. 152. L. 20.4 ORRK NBL KSU. f. 22. Units hr. 723. L. 32.5 ORRK NBL KSU. F. 22. Unit. hr. 189. L. 1 - vol. 6 ORRK NBL KSU. F. 22. Unit. hr. 780. L. 27.7 ORRK NBL KSU. F. 22. Unit. hr. 197 - L. 42. A necessary condition for the material support of students, among whom there were many visitors sent to study by party, state and public organizations, was the provision of cheap, basicly equipped housing. In the 1920s, the Soviet state took over the provision of housing for students. However, since the number of students increased after the October Revolution, and the country’s economy was undermined, the state was unable to resolve this issue [Klyuchevich, 2002. P. 13]. In addition, as a result of the “revolutionary housing redistribution,” housing was excluded from market circulation, and this entailed significant changes in the living conditions of all groups of the population [Chernykh, 1998. P. 201]. In the 1920s, some students lived in a dormitory . The dormitory could be used by persons receiving state scholarships, sent by the party or the Komsomol. In the personal files of Kazan University students, there is a mention of several dormitories: “Belgium”, a dormitory for fifth-year doctors on Lyadskaya Street, dormitory - 4, temporary dormitory - 6, dormitories “Volga” and “Svet”. Many dormitories were absolutely unsuitable for people to live in and were overcrowded. “We lived in a temporary dormitory until November (student canteen), where there were 30 of us in one room, on the floor, in the dirt, half-starved” 1, “In the 1921-22 academic year, I lived in a student dormitory in extremely difficult housing and material conditions , because the scholarship that I received then was too insufficient" a. In the 1925/26 academic year, 2,027 students studied at Kazan University, and only 320 people lived in the dormitories (Fig. 3), thus, it is possible to do the conclusion is that the dormitories did not solve the housing problem [Vishlenkova, Malysheva, Salnikova, 2005. S. bo]. The students themselves had to look for an apartment or room. As a rule, housing was found in houses located near the place of study [Klyuchevich, 2002. S. and]. An apartment or room was often rented for two or more students, who shared the rent and utility costs: “... I wouldn’t live in a small room with three (three) companions. Why would I do this?” If not in order to We had to spend less on firewood, which we still almost don’t have at all (1/2 of a sleigh)” h. Many students did not have the financial opportunity to rent decent housing, so they agreed to live even in completely unsuitable conditions. So, a medical student1 ORRK NBL KSU. F. 22. Unit. hr. 152. L. 20.2 ORRK NBL KSU. F. 22. Unit. hr. 794 - L. 22.3 ORRK NBL KSU. F. 22. Unit. hr. 2686. L. 13. Faculty of K. G. Belousov in 1923 was removed from the scholarship, and therefore lost her place in the dormitory. She was left without a roof over her head “and spent the entire year living with students she knew.” Soon the housing department provided her with “a damp basement without a stove, door or glass, which was declared unfit for habitation, in which I live to this day”1. A student of the Faculty of Physics and Mathematics, A. E. Efremova, was charged a tuition fee of 30 rubles. To the application requesting an exemption from the fee, she attached an inspection report of her living conditions, signed by a member of the RCP (b): “The room is small, 3 square fathoms. Four people live in it. Pays for an apartment per square fathom per person 9 kopecks... In hygienically terrible. Three windows face south. There is enough light. For four, of course, it’s cramped." the administration belongs to the house, not the Berevskys. There is also scanty furniture in the room, which also belongs to the administration"; “All the furniture in the apartment (except for beds and books) belongs to the public canteen of our union that was in our apartment, which, knowing our need, came to our aid by providing temporary use - 1 ORRK NBL KSU. F. 22. Storage unit 705 - L. U.2 ORRK NBL KSU F. 22. Storage unit 2686. L. and.3 ORRK NBL KSU F. 22. Storage unit 780. L. 27. table, chairs, cabinets, etc."1. There were problems with lighting and heating of the rooms, as student A.I. Berezina writes, who included among the funds necessary to create conditions for intensive academic work: “products necessary for research, and funds for heating and lighting... "a. HJC Virganskaya, in her application to the scholarship commission, complains that she does not have money to buy firewood, and she cannot get it from anywhere. At the end of her statement, she describes the situation in which many students found themselves in the 1920s: “You need bread, firewood, lighting, and besides, there aren’t a lot of small unforeseen expenses, and it turns out that either without bread, or without firewood. But it’s impossible for there to be both.” Living in unsuitable premises led to the emergence of various diseases. “I live in an unheated and damp room, I’m so cold that I can’t sleep, my legs hurt terribly from the cold and dampness, in addition to this, Professor Zimnitsky found catarrhal and pleural phenomena in the lungs” “The scattered nature and the pursuit of a piece of bread is killing me "My health has been very bad lately: in addition to the anemia and neurasthenia that I had previously, bronchitis has recently been added, and, apparently, not in jest." Many students went through various epidemics: “...then he suffered from rash, typhoid and relapsing fever, and in 1921 he suffered from pleurisy and malaria” 6; “since the autumn of 1921 he was ill with severe typhoid fever, then in the summer of 1922 with typhus” 7; “I was sick for the whole 21 years, suffered all three typhus, one after the other.” 8. A common disease among students was tuberculosis: “Besides, I am sick with pulmonary tuberculosis and lupus, and I have nowhere to live, not only to get treatment” 9; “The desperately difficult financial situation and pulmonary tuberculosis again force me to turn to the commission with a request to restore my rights as a scholarship recipient”10. Local tuberculosis dispensaries in eco-1 ORRK NBL KSU. F. 22. Unit. hr. 189. L. 1 - ob2 ORRK NBL KSU. F. 22. Unit. hr. 768. L. 4.3 ORRK NBL KSU. F. 22. Unit. hr. 1415. L. 23.4 ORRK NBL KSU. F. 22. Unit. hr. 1415. L. 23.5 ORRK NBL KSU. F. 22. ED-hr. 197 - L. 42.6 ORRK NBL KSU. F. 22. Unit. hr. 79. L. 12.7 ORRK NBL KSU. F. 22. Unit. hr. 11. L. 1.8 ORRK NBL KSU. F. 22. Unit. hr. 1944. L. 1.9 ORRK NBL KSU. F. 22. Unit. hr. 1374. L. 19.10 ORRK NBL KSU. F. 22. Unit. hr. 2688. L. 16. economic crisis and shortage of medicines worked unsatisfactorily and could not accommodate all the sick. Conclusion Thus, social policy in the field of higher education in the first years after the revolution was considered by the Bolsheviks simultaneously as a tool for remaking the class structure of society and as a means of creating loyal political regime of specialists suitable for building a new state. Of course, the repertoire of those measures that could be used to achieve these goals was very limited, on the one hand, by modifying the system of barriers (expanding access for some - representative families of workers, peasants - and creating restrictions for others - people from the unreliable nobility, spiritual estates, merchants), on the other hand, by the creation of specific measures of social support for students. A significant limiting factor was the situation of deprivation and restrictions caused by economic devastation, general poverty and limited state budgets. It should also be noted that the principles of isolation and support were based on ideas about the reproducibility of dangerous social qualities from generation to generation, which justified the need to introduce class restrictions on children from socially dangerous groups; the very idea of classes and estates was based on ready-made social models , inherited from the past, and in many ways these models substantiated ready-made ways to solve those phenomena that were considered problems during this period (restrictions on access, the introduction of increased fees). But there were other sinister inventions of the era that soon developed - purges of potentially unreliable people, forced public renunciation of parents. All this subsequently gradually took shape into an easily recognizable system of social policy, the development of which in its main features was completed already under the Stalinist regime. Abbreviation ORRK NBL KSU - Department of Manuscripts and Rare Books of the Scientific Library named after N. I. Lobachevsky of Kazan State University. List of sources Vishlenkova E. A Malysheva S. DO. Salnikova A. A. Kazan life (19-20 centuries) // E. TOURNERELLI. Kazan and its inhabitants. Kazan: DOMO "Globe", 2005a. Vishlenkova E. A. Malysheva S. / O. Salnikova A. l. Terra Universitaris; Two centuries of university culture in Kazan. Kazan: Kazan University Publishing House, 2005b. History of Kazan University named after V.I. Ulyanov-Lenin / Under the general direction. ed. D. Ya. Martynova. Kazan: [B. i.], 1954. Kazan University. 1804-1979. Essays on history / Rep. ed. M. T. Nuzhin, [B. m.]: Kazan University Publishing House, 1979. Klyuchevich A. S. Memoirs of a chemist - a graduate of KSU. Kazan: Kazan University Publishing House, 2002. Levina I, B. Chistyakov A. I. Everyman and reforms: Pictures of everyday life of townspeople. St. Petersburg: Dmitry Bulanin, 2003. Markov A. R. What does it mean to be a student: Works of 1995-2002. M.: New Literary Review, 2005. Public education in the USSR: General education school: Collection of documents. 1917-1973 / Comp. A. A. Abakumov and others. M.: Pedagogy, 1974 * Postnikov E. S., Russian students under the conditions of the new economic policy (1921-1927). Tver: Publishing house Tver. University, 1996. Rozhkov A. Yu. In a circle of peers: The life world of a young man in Soviet Russia in the 1920s. Krasnodar: Prospects for Education, 2002. Stepanov A.I. “Class rations” and social mobility of the creative intelligentsia during the years of revolution and civil war // Revolution and man: Life, customs, behavior, morality. M.: RAS, 1997 "Fitzpatrick Sh. Everyday Stalinism: Social history of Soviet Russia in the 30s: city. M.: ROSSPEN, 2001. Chanbarisov Sh., X. Formation of the Soviet university system (1917-1938). Ufa : Bashkir, book publishing house, 1973. Chernykh A* The formation of Soviet Russia; the 20s, in the mirror of sociology. M.: Monuments of historical thought, 1998, Chuikina S. Nobles on the Soviet labor market (1917-1941). ) // Norms and values of everyday life: The formation of a socialist way of life in Russia, 1920-1930s, St. Petersburg: Neva Magazine, 2000. Kassow S. D. Students, Professors and State in Tsarist Russia, Berkeley: University of California Press , 1989.
R. RAKHIMOVA, professor, vice-rector for educational work
The transformation of Russian society has determined qualitatively new tasks for theoretical understanding and concretization of the most important aspects of activities for the socialization and adaptation of youth. The solution to this problem is impossible without a close connection with the processes and phenomena occurring in our society, without taking into account the entire set of factors (socio-economic, political, spiritual, moral, etc.) that influence the value orientations of modern youth. The environment of youth with its spontaneous, unwritten requirements and principles forms a specific social field, which, on the one hand, promotes adaptation to dynamic social conditions and independence from parents, but, on the other hand, often has a detrimental effect on the younger generation, breaks, hypertrophies the views and principles of the emerging personality, nullifying the efforts of those who are trying to have a positive impact on it (for example, parents, teachers).
Over the years of the formation of a market economy in Russia, a number of contradictory trends have emerged in the dynamics of value orientations and the processes of adaptation of young people. As sociological studies show, some young people believe that there are more opportunities to use their abilities and knowledge. At the same time, many people underestimate the importance of professionalism, and the value of work for them is largely instrumental in nature. In the new economic conditions, there is a reassessment of moral values, which causes irreversible losses in the spiritual development of young people. Position analysis
Youth policy and social development of students
The situation of the younger generation in Russia allows us to state: along with the tendency of deepening deformations in value orientations, manifested in general social apathy, lack of spirituality, the decline in the prestige of honest work, the growth of consumer sentiment in a changed social situation, young people are developing a desire to develop and accept such life attitudes that would allow them to find their place in life.
Universities occupy a special place among the agents of socialization. The main goal of higher education in modern Russia is the formation of a new type of specialist with a focus on creative activity, a desire to realize his knowledge, capable of working in changed socio-economic conditions, in specific organizational forms of communication between science and production.
Almetyevsk State Oil Company
This institute is an active conductor of socialization and adaptation of youth in the region. The activities of a regional university are determined, on the one hand, by the quality and quantity of resources available to the university, and on the other hand, by the nature, pace and direction of social changes taking place in society. At the same time, it is necessary to take into account the slowness of this pace in regions where there are limited resources of the local labor market, which is not distinguished by the variety of offers, the relative closeness of status positions, their monopolization by representatives of the older generation, which leads to limited opportunities for provincial youth for upward social mobility. In addition, there is often limited access to high-quality cultural products and a significant lag in the consumption of information services.
Youth policy at a university is a comprehensive social and educational activity for the social development of students (socialization and adaptation), for creating conditions for effective professional training of future specialists during extracurricular time, for the development of student sports and leisure and social protection of students with the aim of forming a competitive specialist and resilient personality. The subjects of this activity are the rector's office, teaching staff, dean's offices, departments, leisure and health center, student public organizations.
This approach to the organization of extracurricular activities at AGNI presupposes not just educational work in the traditional sense for Soviet higher education, but professionally oriented, socially adaptive work as a specially organized and controlled process of training a specialist, including research work, rationally organized leisure time , conditions for the development of creative
abilities of a young man, a health improvement system. The result of such activities should be the optimal inclusion of young people after graduating from university into labor activity and the system of socio-economic relations, the formation of a competitive specialist in the conditions of market production.
Competitiveness is an inherent feature of a democratic society. The competitive personality type of a young person is capable of dynamic horizontal and upward vertical mobility, changing types of activities, mastering new professions, and finding effective solutions in a competitive environment.
The living conditions of young people are already set by society, social institutions and social groups, and often the values and goals that the university seeks to actualize for a young person run counter to the social norms proposed by society and previously learned behavioral stereotypes. In addition, young people often come to university experiencing serious emotional problems, often having persistent deviant attitudes.
Therefore, when developing a youth policy strategy at the Almetyevsk State Petroleum Institute, we proceeded from solving the following tasks:
♦ streamlining the spontaneous socialization of youth, preventing negative trends among youth in the form of deviant behavior;
♦ introducing students to the volume of knowledge that would contribute to their preparation for life and work in modern conditions;
♦ development of the university as a socially and professionally adapting center that promotes self-actualization of the individual, mastering new social roles, including professional specialist and citizen.
Youth policy at the university is directed
to actualize the rational needs and fundamental interests of young people, create a system of social protection for young people, and compensate for the student’s insufficient social status.
An important part of this work is the creation of a humanitarian socio-cultural environment. It will allow the university to function as a corporation, an open socio-cultural system, a center of communication and a healthy lifestyle in the region. In the unstable transition period that Russia is going through, the transmission of traditions, rather than the experience of past generations in overcoming crises, is of particular importance.
In our opinion, the humanitarian socio-cultural environment at AGNI involves the implementation of the following areas:
♦ use of traditions and positive experience accumulated by the staff of the institute and in related universities;
♦ search for new forms and directions for the development of students’ creative abilities, their self-realization and self-actualization;
♦ monitoring the interests, dynamics of value orientations not only of ASNI students, but also of the region’s youth (potential applicants) as the basis for planning social work at the university;
♦ improving the planning of the extracurricular work management system at all levels and in interaction systems: administration - faculty - department - curators - student; basic enterprise - institute;
♦ modernization and development of new regulatory and advisory documents (including methodological ones);
♦ a system of moral and material encouragement, stimulating the most active teachers and students in the development of humanitarization of the university environment;
♦ formation of positive models of behavior in the student environment, formation of positive leaders;
♦ direct personal orientation
contact of students with mentors, teachers, cultural figures, scientists, experienced production workers;
♦ timely adjustment of plans.
Humanization of the educational process necessarily proceeds through humanitarization, that is, expanding the quantity and improving the quality of humanities subjects. A prerequisite for the success of this process is the direct participation of each subject of the educational process in social and educational work. An important part of this work is supporting students in the process of their social adaptation so that they become adequate to the emerging conditions, positively adapt to them, develop as specialists, and maintain their individuality.
In order to successfully implement the specialist training program, the administration of the Almetyevsk State Petroleum Institute has established close ties with oil producing and oil refining enterprises in the region, primarily with OJSC Tatneft. The activities of the institute and the oil company in this direction are manifested in the implementation of plans for joint events of the departments of the institute and divisions of the joint-stock company, the student trade union organization, the student scientific and technical society, the Leisure and Wellness Center of the institute and the Youth Organization, the Council of Young Professionals, the trade union organization of OAO Tatneft in terms of youth policy. Cooperation programs between the institute and OAO TATNEFT include holding joint scientific and practical conferences, career guidance, local history, historical and cultural excursions, volunteer activities, organizing environmental cleanup days, as well as leisure activities.
An important place in this work is occupied by the process of forming a corporate university spirit, which gives a unique
the meaning and quality of the educational and leisure process that permeates all components of the university environment.
The creative activity of students within the framework of extracurricular work, which is permanent, is carried out through a variety of clubs and interest groups, sports, sections, the Vertical newspaper, video and radio studios.
Since 2000, by decision of the Academic Council of the Institute, a Leisure and Health Center (DHC) has been operating at AGNI, which includes a sports club, which includes sports sections, and a Student Club with creative groups, clubs, and studios. The approved Regulations on the work of the DOC became one of the first official documents of the institute regulating leisure work at AGNI.
There is a dance studio “Umyrzaya”, a sports dance studio “Inspiration”, a choir studio, a theater studio, and a KVN team “10 Little Indians” working at the DOC. The center carries out its work for the purpose of patriotic education of youth, their comprehensive harmonious development, the fight against drug addiction, AIDS and alcoholism, as well as raising the social, creative, sports and intellectual level of students.
On the initiative of the rector's office, the institute holds a republican festival of student creativity named after. S. Suleymanova “Tormysh, isenme!”, in which students, youth of the region and young workers of OAO Tatneft participate.
The sports club "Burevestnik" of the children's center has sports sections in nine sports. According to the calendar plan of the sports club, competitions are held among academic groups, courses
owls and faculties in volleyball, basketball, mini-football, judo, wushu, sambo, athletics, chess, table tennis, general physical training.
This year, the DOC, together with the faculties, is holding a “Health Marathon”, within the framework of which sports and educational events are held, and the emotional state of students is monitored.
An important area of youth policy is the professional adaptation of students through a network of scientific circles.
The Student Scientific and Technical Society plays an important role in solving problems of managing students' research activities. The society includes the most active students inclined to scientific work. The following circles operate on the basis of the SNTO: geological, club “Conquerors of the Earth’s Depths” (drillers), historical and cultural studies, school of translator, student psychological club (SPK), student sociological laboratory, cyber club “EpShsha”.
The geological circle has existed for more than 5 years. This is a self-organizing team of like-minded students, up to
sharing their knowledge not only in classrooms, but also on expeditions.
During 5 years of geological practice, students visited the Karagay magnesite deposit (Satka), the Baikal group of iron ore and quartzite deposits (Lake Baikal), the Zyuratkul and Taganay national parks, the Ilmen mineralogical reserve, the Miass Pond gold deposit (the city of . Miass), talc enterprise (Miass), marble factory (Medvedovka village), Akhtinsky quarry (Yuvazhelga village). The easternmost point of geological expeditions of AGNI students is the southern Baikal region and Transbaikalia. During expeditions, samples of rare minerals and rocks are always taken. The Kandalaksha and Tersky shores of the White Sea, strewn with amethyst brushes, were also examined. This is the northernmost direction of the expedition, it is far beyond the Arctic Circle. Over the past 2 years, the Department of Geology has organized and conducted educational and educational geological practices for students of the Faculty of Oil and Gas in the Urals, Samara region, as well as a geological relay race in the village of Tenishevo, Kama-Ust-insky district of the Republic of Tatarstan. Based on the results of the expeditions, regional scientific seminars and conferences are held.
In 2000, the first exhibition of the educational Museum of the History of the Peoples of Tatarstan was opened. The museum's exhibits are collected by students and teachers of AGNI. The Book of Donors is being maintained. The permanent exhibition of the museum is “Folk crafts of the peoples of Tatarstan”. Changing exhibitions: “History of oil and gas formation in Tatarstan”; “History in Faces” (photographs of the late 19th century - the first half of the 20th century; a catalog has been published for this exhibition); “History of Russia in banknotes”; “Doll as a symbol of culture”, “Great Victory. Family Chronicles". The educational museum was created by members of the historical and cultural circle, which is attended by 1st-5th year students. An important place in the work of the cultural circle is occupied by trips to
cities of Russia and Tatarstan (Elabuga, Bulgari, Kazan, Moscow, St. Petersburg, cities of the Golden Ring of Russia, the Urals). Based on the results of the trips, scientific and practical conferences are held. Over the past 2 years, the following conferences have been held: “St. Petersburg in the history and culture of Russia”, “Signs and symbols in world culture”, “Applied art of the Urals”.
The student scientific society “Conquerors of the Earth’s Depths” was organized in November 2001. During the work of the club, members of the society visited: famous drillers, labor veterans, scientists and industry leaders, inventors and innovators of the oil industry of the Republic of Tatarstan. Drilling students are frequent guests at a unique ultra-deep well located on the territory of the Almetyevsk region, the main oil pumping station of the world's largest trans-European main oil pipeline "Druzhba", and the enterprises of OJSC Tatneft. Students gain in-depth knowledge in the field of new high technologies being developed for the oil industry, get acquainted with the life experience of specialists, thanks to which AGNI graduates begin work as more prepared engineers, with deep technical and humanitarian knowledge.
The translator school has existed for about six years and operates on a program that gives students additional knowledge of foreign languages, as well as speaking practice. The school organizes meetings with specialists from the largest oil and gas producing enterprises: the joint Tatarstan-American CJSC Tatex and the foreign trade company OJSC Tatneft, during which live communication takes place in a foreign language.
In January 2003, the Department of Humanitarian Education and Sociology organized the work of a student psychological club (SPK). In accordance with the interests of students, the purpose of the SEC is determined: development
psychological culture of students, effective implementation of the main types of psychological functioning (self-knowledge and self-determination, communication, self-regulation of emotions and actions, creativity, self-development). The main activities of the SEC are conducting training sessions, specialized lectures, psychodiagnostics, watching videos, etc. The club actively cooperates with the city center for socio-psychological assistance “Ak Kaen”.
The purpose of the student sociological laboratory is to conduct research in the institute, city, region, and provide educational, methodological and scientific developments to the departments of the institute. The surveys reflect students’ attitudes toward the use of alcohol, drugs, smoking, leisure problems, etc. Analysis and processing of research results is carried out using modern computer programs “DA-System” and “BRBB”.
The work of all these circles is a direct continuation of the educational process, as students here deepen their knowledge. The best reports and communications made at the annual scientific and practical conferences of the institute are recommended for presentations at conferences in universities of the republic and Russia.
Thus, extracurricular time at the institute is used both for general personal development and for deepening the professional training of future specialists.
One of the current problems discussed and solved in the higher education system is the effectiveness of educational work at a university.
An analysis of sociological literature, as well as the work experience of related universities, allowed us to conclude that the following indicators can be considered as criteria for social and educational work: the degree of development of a young person’s vitality from the moment he enters a university until he graduates; adapt-
the young person’s ability to adapt to new socio-economic conditions.
We believe that in this case it is necessary to talk about the criteria for the effectiveness of social learning of an individual, his socialization and adaptation. Therefore, it would be fair to use the concepts of “social” and “socialization norms”.
An indicator of socialization can be considered the development of the ability to build and implement one’s own life project. Thus, one of the criteria for the effectiveness of social educational work in the field of youth policy at a university can be determined by the optimal relationship between social and socialization norms in the attitudes and life projects of students.
As part of the work to determine the criteria for the effectiveness of this work, we have developed the “Students’ Life Project” program, the purpose of which is to study the basic value orientations of individuals and the life goals of institute students. Sociological surveys are carried out by participants of the psychological circle under the guidance of Associate Professor I. A. Zakirova using several methods, including the “Life Goals” method,
An analysis of a survey conducted in November 2004 showed that first-year students are clearly focused on graduating from university (80%), getting a job (56%), starting a family (32%) and some kind of “fulfillment of their desires (12% ). The unipolarity of the goals is striking: first-year students define the strengthening and raising of their status as the main value.
Analysis of the responses of 5th year students showed a wider range of life goals: successfully graduate from university (35%), get a second higher education (35%), start a family (24%), find a favorite job (18%), find your place in life (12%). There is an actualization of a wide range of needs of young people, which demonstrates the presence of a life project and positive adaptation of young people,
which lasted for five years, including within the walls of the university. Thus, we can say that the process of social development of young people, implying the realization of their fundamental interests, successful social and role learning, actualization of positive needs, self-assessment of individual resources, has a positive trend in AGNI.
Students highly appreciate the work of the administration and teaching staff in the implementation of social educational activities and youth policy. 95% of 1st year students after two months of study at AGNI rated it as
“excellent” and “good”, and of the 5th year students, 72% of respondents rated it as “good”, “excellent”.
Thus, a preliminary analysis of the effectiveness of educational work within the framework of the youth policy of our university shows that the adopted program of extracurricular professionally oriented, socially adaptive work contributes to the formation of the personality of a specialist with a high degree of resilience, capable of adapting to difficult social conditions, creatively developing and realizing as a professional. active member of society.
L. ADLER", honorary professor of AGNI
The history of any higher educational institution, which is more than a dozen years old, reflects the life of the country with its changes in political regimes, governments and social systems. Despite the well-known inertia of the education system, ongoing social changes, revolutions and reforms entail a restructuring of secondary and higher schools.
Thus, after the October Revolution of 1917, unbridled social experimentation began in the field of education. Gold medalist of the old gymnasium and holder of a first degree diploma from St. Petersburg University, a man whose father served in the field of education not only the rank of general, but also hereditary nobility, V.I. Ulyanov, having become Lenin, declares all previous experience of school development in Russia only negative and anathematizes it. This was supposed to be a school of rote learning, a school of drill, a class school, preparing faithful servants of the serfdom.
From evening faculty to institute
statehood and autocracy. Unbridled “social engineering” begins under the motto of destroying traditions “to the ground”: down with transfer and entrance exams, we will open a “green street” through workers’ faculties to institutes for people from the working class and its allies, we will lower the barrier on the way to the Soviet school for all “formers” , “disenfranchised” and “nepmen”.
* Adler Lev Moiseevich, born in 1922, participant in the Great Patriotic War, has been working at AGNI since 1956.
0COURSE WORK
in the discipline "System of State and Municipal Administration"
Faculty of Economics and Management
Department of State and Municipal Administration
Coursework assignment
Implementation of social policy in Russia
Initial data:
Legislative and regulatory acts, statistical data on the state of the social situation in the Russian Federation, Internet data, as well as publications of domestic and foreign economists on the problem under study.
List of questions to be developed:
1) show the need to implement social policy in Russia;
2) conduct an analysis of the development of social policy in Russia;
3) determine prospects for improving social policy;
4) identify problems in the development of social policy in Russia;
5) show the results and prospects for the implementation of social policy in Russia.
List of graphic material:
Tables, graphs, drawings, diagrams reflecting the features of state policy in the field of labor and employment in Russia
Date of assignment “___”______________20__
annotation
This course work examines theoretical and practical issues in the field of social policy of the Russian Federation.
The structure of the course work is as follows. The first section reflects the theoretical foundations of social policy. The second section analyzes the development of social policy in the Russian Federation. The third section identifies prospects for improving Russia's social policy.
The work was printed on 44 pages using 21 sources, contains 2 tables, 4 drawings.
Introduction………………………………………………………………………………………...5
1 The essence and theoretical foundations of social policy…….………………….7
1.1 Social policy: content, goals, functions, principles”….………7
1.2 Main directions of social policy…………………..………...10
1.3 The need to implement social policy in Russia……………..13
2 Analysis of the development of social policy in Russia…………………..……….15
2.1 Regulatory framework for the implementation of social policy…………..15
2.2 Federal social policy and analysis of its financing.........17
2.3 Strategy for the modernization of social policy…………………….…….27
3 Prospects for improving social policy in Russia…….…….31
3.1 Problems of social policy development………………………...………31
3.2 Imperatives for improving social policy in Russia…….....36
3.3 Results and prospects for the development of social policy in modern Russia………………………………………………………………………………….……40
Conclusion………………………………………………………………………………….45
List of sources used…………………………………..……….47
Introduction
The current socio-economic, moral, psychological and spiritual situation in Russia is extremely contradictory and multifaceted. There is instability in the economy, the federal budget deficit is acutely felt, the number of people with incomes below the subsistence level is practically not decreasing, the differentiation of the population by income is increasing, tension in the labor market is increasing, arrears in the payment of wages, pensions and social benefits are growing, trends are becoming more acute disadvantages, including social deviations. The current situation requires taking adequate measures, primarily in the field of developing a system of social protection of the population and ensuring social security, which can only be achieved by reforming public life and pursuing a competent and effective social policy of the state. Due to the ill-conceived reforms, not only the interests and needs of individual people or the most disadvantaged social groups, but also society as a whole are now under threat. It is known that the vital parameters of Russian society have long gone beyond the norm and have become a threat to the very existence of society. Experts talk about the extremely critical values of vital indicators of society as a whole. Reforming social life deeply affects not only the mechanism of managing society, but also the entire complex of interests of the individual, work collectives, classes, nationalities, social and professional groups and segments of the population. Among the factors contributing to the harmonization of the interests of the individual and society, guaranteeing the protection of human interests, his rights and freedoms, a special place belongs to the social policy of the state. One of the main tasks of social policy at the present stage is the social protection of the population from the negative consequences of market relations in the economy. This involves maintaining a balance between cash income of the population and commodity resources; creating favorable conditions for improving the living conditions of citizens; development of the service sector for the population, satisfying their demand for quality goods and services; expansion of the material base for strengthening the health of the population, increasing its education and culture. Also, an important place in state policy belongs to ensuring social justice in society. Social justice must be specified and supplemented by a system of local social work.
Currently, there are many factors that bring the entire sphere of social protection of the population into a deplorable state, many social problems that must be solved with the help of social policy. All this makes the study of social policy relevant and necessary (so that the development of modern Russia is progressive).
The purpose of the course work is to show the need for social policy in Russia.
Main goals:
1) reveal the essence and theoretical foundations of Russian social policy;
2) determine the main directions of social policy;
3) show the need to implement social policy in Russia;
4) conduct an analysis of the development of social policy in Russia;
5) identify a strategy for modernizing social policy;
6) determine prospects for improving social policy;
7) identify problems in the development of social policy in Russia;
8) show the results and prospects for the implementation of social policy in Russia.
When developing this course work, research methods such as analysis, deduction, and graphical methods were used.
1 The essence and theoretical foundations of social policy
1.1 Social policy: content, goals, functions, principles
The concept of social policy is one of those categories that are widely used in the practice of state building and are used in official documents. On the other hand, social policy is the subject of fairly broad scientific discussions, and the scope of the concept and its content differ significantly among different researchers.
This is due to the fact that social policy is the most significant area of interest of modern society and the most important part of the activities of a modern state. Social policy is closely connected with the type and level of development of society, with the dominant mentality of the population, with the goals and objectives that society sets for itself in its social development.
Before characterizing social policy, it is necessary to say in general what politics is.
Politics is:
1) relations between social groups, classes, states regarding conquest regarding conquest, maintaining the consolidation of power;
2) a system of activities in various areas of public life: in the economic sphere, social sphere, spiritual life, military sphere, etc.;
3) practical activities to implement the political course, to achieve political goals;
4) participation in power relations of citizens, politicians, public organizations;
5) the art of working with people, the ability to take into account and express their interests, capabilities, psychological, professional, and other qualities.
The central subject of politics is the state. An integral attribute of the state is power, which 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, law, and violence.
Any social problem acquires or can acquire a political character if its solution affects the interests of large social groups, classes and is associated with the use of state power.
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 and 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.
Any social programs, as is known, are only a declaration if they are not supported financially or provided economically. In this sense, social policy is secondary to the economy, both in content and in terms of objectives and preferences. But this does not mean that its significance and influence on the course of development of material and spiritual culture, the course of social development is of secondary importance.
In the social sphere, the results of the economic and economic activities of society are manifested and assessed, its effectiveness and ability to satisfy the interests and needs of people are checked. In the social sphere, the degree of humaneness of state policy is reflected and manifested, and the stronger it is, the more clearly the humanistic essence, the humanistic meaning of the direction of social development.
Finally, without an effective social policy, it is impossible to activate innovative creativity in human activity as the main and central element of the productive forces of social development and economic success.
Social policy is based on a system of principles expressing the nature of the requirements for its content, forms and methods of development and implementation:
1) humanism, social justice;
2) consistency, continuity, succession;
3) balance of goals and possibilities for implementing social policy (both in terms of time and necessary resources);
4) openness (free expression of opinions of all groups and strata of society on issues of social policy - the presence of “feedback” from governing bodies to the masses);
5) democratism in the development and implementation of social policy (open discussion of draft major socio-political decisions, comprehensive identification of public opinion on the main issues of social transformation);
6) effective control of society over the implementation of social policy;
7) targeting of measures for social protection of the population, strengthening social assistance to socially vulnerable and low-income groups of the population.
1) expression, protection, coordination of interests of social groups and layers of society, its individual members;
2) optimal resolution of social contradictions in the social sphere, implementation of “dialogue” between citizens and the state;
3) integration of various segments of the population, harmonization of their interests, maintenance of an integral social system, stability and order;
4) prognostic;
5) social protection of the population;
6) management of social processes, etc.
With the help of functions, the main task of social policy is ensured - the harmonization of social relations, and the social development of society is managed.
As for the directions of social policy, here, as a rule, it is customary to distinguish two relatively independent blocks:
1) social policy in a broad sense, which covers decisions and activities affecting all spheres of life of members of society, including providing the latter with goods, housing and social infrastructure services, jobs, acceptable cash incomes, expanding and strengthening the material base, protecting and promoting public health , its education and culture, the creation of a system of guaranteed social conditions for the life of citizens;
2) social policy itself (its elements are policy in the field of social protection and its specific types: family policy, youth policy, policy on social protection of the elderly and disabled).
So, in essence, speaking, the meaning of the state’s social policy is to maintain relations both between social groups and within them, to provide conditions for increasing the well-being and standard of living of members of society, to create social guarantees in the formation of economic incentives for participation in social production. It should be noted that the social policy of the state, which acts as an integral part of the activities carried out by the state in order to regulate the conditions of social production as a whole, is closely linked to the general economic situation in the country.
However, social policy cannot be viewed as a purely economic problem. Economic science, as the subject of its research in the field of social policy, focuses on the economic mechanisms of its implementation. In a market economy, these include, first of all, mechanisms for generating income and maintaining employment.
Thus, when speaking about the social policy of the state, we mean, first of all, government actions aimed at the distribution and redistribution of income of various members and groups of society. This is how social policy can be defined in the narrow sense of the word. In a broad sense, social policy is one of the areas of macroeconomic regulation designed to ensure the social stability of society and create, as far as possible, the same “starting conditions” for all citizens of the country.
1.2 Main directions of social policy
Social policy is a set of government measures aimed at regulating the entire complex of social processes and relationships between people. The fundamental document regulating the foundations of social policy is the ILO Convention of 1962 No. 117 “On the Fundamental Objectives and Standards of Social Policy”. It notes that any policy should primarily be aimed at achieving the well-being of the population, as well as encouraging its aspirations for social progress. The Constitution of the Russian Federation is based on the basic provisions of ILO Convention No. 117. Article 7 of the Constitution of the Russian Federation states: “The Russian Federation is a social state, the policy of which is aimed at creating conditions that ensure a decent life and free development of people.” There are three main directions of social policy: 1) creating conditions for labor activity, regulating employment and wages, improving the labor qualities of the employee. Function - active, object - economically active population; 2) direct income support through the social security system Function - protective, object - the most needy, economically vulnerable segments of the population; 3) development of the human personality, maintaining health, raising the cultural level, providing “natural” services through the social infrastructure system. Function - constructive, object - all segments of the population. With the beginning of radical market reforms in the Russian Federation in the early 1990s, the problem arose of developing an appropriate social policy that would mitigate the negative consequences of radical market reforms and implement the principles of a welfare state. Unfortunately, these plans were not fully realized. Market reforms led to a significant drop in real incomes of the population, increasing income differentiation, which is explained by many reasons, such as: 1) the policy of privatization of state property, which contributed to a deep split in society into rich and poor; 2) a deep decline in production, which continued throughout the 1990s. Economic growth in Russia began only in the second half of 1999. It is obvious that such a duration and depth of the recession led to a sharp drop in real incomes of the population of our country; 3) the emergence of a deflationary gap, i.e. situations of insufficient domestic aggregate demand. It was due to strict monetarist policies, which involved limiting the money supply in circulation. In the Russian economy, the share of the M2 monetary aggregate and GDP does not exceed 15%, while in Western European countries it is in the range of 60-80%, and in the USA - more than 100% of GDP. The resulting situation led to a sharp drop in aggregate demand; 4) continued high growth rates of consumer prices; 5) the unresolved nature of many problems in the development of fiscal federalism in Russia, i.e. The optimal proportions for the distribution of income and expenses across the three levels of the budget system have not yet been found: 1) federal budget; 2) budgets of the subjects of the federation; 3) budgets of municipalities (local budgets); The current stage of development of fiscal federalism in Russia is characterized by the desire of the federal center to shift an increasing share of social obligations to territorial budgets. For example, the 2012 budget provides that the regions will account for more than two-thirds of the social expenditures of the consolidated budget, including: funding for housing and communal services - almost 94%, healthcare - more than 76%, social policy - 65%. At the same time, there is no provision for the allocation of additional funds to ensure additional powers transferred to the regions. Meanwhile, the budgets of about 40 constituent entities of the Russian Federation are in deficit, so many regions are not able to fully fulfill their social obligations; 6) serious shortcomings in the methodology and practice of social planning. In the Russian Federation, advanced approaches to planning social events, widely used in Western countries, are poorly used, which involve abandoning the residual principle of financing the social sphere, focusing on the achieved level of social expenditures (“planning from what has been achieved”) and the transition to their targeted planning and financing. With this approach, the goals that must be achieved in social policy come first. They are reflected in the system of social standards, expressed through social norms and norms. Thus, the current system of social norms and standards in our country is poorly structured: it does not identify priority indicators of the standard of living related to solving the most urgent and vital problems. At the same time, the established social norms and standards do not contain qualitative characteristics, and their quantitative value, as a rule, is not sufficiently substantiated, since the norms and standards are not based on objective requirements for maintaining a certain standard of consumption of material goods and services. Such standards are significantly underestimated, since they are planned based on the already existing, clearly insufficient level of financial support for social expenditures. At the same time, the very set of social norms and standards is extremely limited. The most acute social problem of modern Russia is poverty, which has reached enormous proportions. In the first quarter of 2010, 20.6 million people. (14.7% of the total population) had incomes below the subsistence level. It should be noted that these figures do not fully characterize the true scale of poverty in our country, since, according to experts, the cost of living is underestimated by 1.5-2 times. One of the indicators of the extremely low efficiency of social policy in the Russian Federation is the high differentiation of incomes of the population. The income gap in our country is becoming dangerous from the point of view of social stability. The seven- to eight-fold gap in the income level of the extreme decile groups of the population is considered critical in this regard. In Russia, it reaches 14.8 times. The Gini coefficient in 2010 was 0.409 (in 1992 it was 0.289), which indicates a sharp increase in income differentiation during the period of market transformations. The deep income gap between rich and poor that has developed in our country is also of serious concern because it contradicts the main trends in social policy in the leading countries of the world economy. In the second half of the 20th century, significant changes took place in the life of society there. The social characteristics of a significant part of the population (from 1/2 to 2/3) have changed, which began to consider themselves not so much workers, farmers, employees and small entrepreneurs, but rather the middle class. It is known that belonging to the middle class is determined not by the attitude towards ownership of the means of production and not by the source of income (this could be wages, profit on invested capital, dividends from shares, etc.), but by its level. The most important characteristic of the middle class is a fairly high degree of confidence in the stability of its position, which is guaranteed by the state social protection system and acquired professional status. Those in the middle class have a lot to lose in the event of social upheaval and political conflict. It was the middle class that became the pillar of stability in society. It is necessary to pay attention to costs for social purposes and science. In 2010, 1184.7 billion rubles were allocated for these purposes, of which the majority (427.5 billion) was spent on social policy, followed by expenditures on education (341.1 billion), healthcare, /k and sports (274.6 billion). The smallest item of expenditure is expenditure on housing and communal services (71 billion) and culture (67.5 billion). But practice shows that a greater injection of funds into the social sphere is necessary. The situation in the social sphere in the Russian Federation actualizes the problem of choosing the optimal model of social policy. In modern conditions, the confrontation between two alternative options is intensifying - the policies of the social and subsidiary states. At the same time, in recent years, supporters of the consistent implementation in practice of the doctrine of the welfare state have become more active. This is evidenced by four national projects put forward by the President of the Russian Federation, affecting priority areas of socio-economic development: 1) education; 2) healthcare; 3) housing construction; 4) agriculture. In particular, it is envisaged: a significant increase in wages for education and health workers in order to stimulate improvement in the quality of educational and medical services, the widespread development of mortgage loans to speed up the solution of the housing problem, and a set of measures to support domestic agricultural producers. The implementation of these projects, which began in 2006, will be of great importance for radically improving the level and quality of life of all citizens of our country.
1.3 The need to implement social policy in Russia
The need for social policy arises due to the imbalance of the economy, inequality of income distribution, uncertainty and risks in the economy, natural risks and disasters, and social risks. Transformations in the sphere of social policy of consumer cooperation organizations are aimed at achieving the following main goals: 1) ensuring the most effective protection of socially vulnerable members, shareholders and the population, since they do not have the ability to independently solve social problems and therefore objectively need support; 2) ensuring universal accessibility and socially acceptable quality of basic social goods, which include, first of all, medical care and general education; 3) cooperation of the working-age population in order to create economic conditions for them that allow citizens, at the expense of their own income, to ensure a higher level of social consumption, including comfortable housing, better quality of services in the field of education and health care, and a decent standard of living in old age; 4) the formation in the socio-cultural sphere of institutions that create the opportunity for the fullest mobilization of funds of the population and enterprises, the effective use of these funds, and on this basis - ensuring high quality and opportunities for a wide choice of social benefits and services provided by the population. Social policy is inherent in the social system. Policy in the field of social programs influences a social system, organization, institution or process in the interests of regulation and development of their activities. A specific feature of this kind of influence is that the object of control here is a complex set of components that are heterogeneous in nature - organizational structures. In turn, social policy is a very multifaceted concept. Social policy as a type includes appropriate levels, forms and subtypes of impact. One of the important components of social policy is the management of social development. The terminological dictionary provides an interpretation of social development as a process during which significant quantitative and qualitative changes occur in the social sphere of public life or its individual components - social relations. Social development is carried out in an evolutionary way, that is, there is a gradual replacement of old elements of the social system with new ones. Thus, the peculiarity of social policy is its instability, when within a short period of time the goals of social policy, its content and role in ongoing processes can change diametrically. This is explained, as we saw above, by the great dependence of social policy on subjective factors (the chosen doctrine of economic development, the political situation in society) and objectively specified restrictions. Objective restrictions affecting the choice of the target function of social policy and the mechanism for its implementation include: 1) social costs (declining living standards of the population, mass poverty, mass unemployment), which arose earlier and subsequently assumed a stable, difficult-to-regulate character; 2) financial restrictions caused by the fiscal crisis associated with a sharp narrowing of the tax base as a result of falling real wages and profits, while simultaneously increasing the social burden on the budget due to the growth of low-income groups of the population in dire need of support; 3) institutional limitations: the lack of a professional management apparatus that could develop programs and measures for future social policy based on an extensive and reliable information base, make competent management decisions and evaluate their results based on the latest methods existing in developed countries; the presence of strong pressure groups in the sphere of social decision-making.
2 Analysis of the development of social policy in Russia
2.1 Legal framework for the implementation of social policy
The regulatory framework for the implementation of social policy in the Russian Federation can be divided into three groups:
1) federal regulations, including federal laws, legal acts of the President of the Russian Federation and the Government of the Russian Federation. This group includes system-forming documents that form the basis of state social policy, as well as regulatory documents of a current nature that determine the conditions for the implementation of the former. Developed by state bodies of legislative and executive power.
2) regional regulatory legal acts, including regional legislation in this area, as well as acts of executive authorities of the constituent entities of the Russian Federation. This group includes documents that specify the conditions for the implementation of social policy in specific constituent entities of the Russian Federation;
3) regulatory legal acts of local governments that determine the specifics of the implementation of social policy at the local level.
It should be noted that federal regulations and legal acts are conceptual in nature, defining the main directions and principles for the implementation of social policy, while regional legislation and acts of local governments are aimed at establishing specific mechanisms for the implementation of social policy.
The legislation of the Russian Federation in the field of social policy determines the main directions of ensuring the rights of citizens of the Russian Federation enshrined in the Constitution. In this regard, the current Russian legislation in the field of social policy can be conditionally classified by taking the rights of citizens guaranteed by Articles 37 - 44 of the Constitution of the Russian Federation in the field of:
1) labor relations and the rights of citizens to rest (Labor Code of the Russian Federation, Law of the Russian Federation of April 19, 1991 No. 1032-I “On Employment of the Population in the Russian Federation”, Federal Law of February 23, 1995 No. 26-FZ “ On natural healing resources, medical and recreational areas and resorts”, Federal Law of October 34, 1997 No. 134-FZ “On the subsistence minimum”, etc.);
2) protection of motherhood and childhood (Federal Law of May 19, 1995 No. 81-FZ “On state benefits for citizens with children”, Federal Law of December 21, 1996 No. 159-FZ “On additional guarantees for the support of orphans and children left without parental care”, Federal Law of July 24, 1998 No. 124-FZ “On Basic Guarantees of the Rights of the Child in the Russian Federation”, etc.);
3) social security (Federal Law of December 10, 1995 No. 195-FZ “On the Fundamentals of Social Services for the Population in the Russian Federation”, Federal Law of November 24, 1995 No. 181-FZ “On Social Protection of Disabled Persons”, Federal Law of July 17, 1999 No. 178-FZ “On State Social Assistance”, etc.);
4) housing policy (Housing Code of the Russian Federation, Law of the Russian Federation dated June 25, 1993 No. 5242-1 “On the right of citizens of the Russian Federation to freedom of movement, choice of place of stay and residence within the Russian Federation”, Law of the Russian Federation dated July 4, 1991 No. 1541-1 “On the privatization of housing stock in the Russian Federation”, Federal Law of July 16, 1998 No. 102-FZ “On mortgage (mortgage of real estate)”, etc.);
5) healthcare (Law of the Russian Federation dated June 28, 1991 No. 1499-1 “On medical insurance of citizens of the Russian Federation”, Law of the Russian Federation dated June 9, 1993 No. 5142-I “On donation of blood and its components”, Fundamentals of legislation Russian Federation on the protection of citizens' health dated July 22, 1993 No. 5487-1, etc.);
6) ecology (Law of the Russian Federation dated May 15, 1991 No. 1244-1 “On social protection of citizens exposed to radiation as a result of the accident at the Chernobyl nuclear power plant”, Federal Law dated
March 30, 1999 No. 52-FZ “On the sanitary and epidemiological welfare of the population”, etc.);
7) education (Law of the Russian Federation of July 10, 1992
No. 3266-1 “On Education”, Federal Law of August 22, 1996 No. 125-FZ “On Higher and Postgraduate Education”, etc.);
8) culture (Law of the Russian Federation of October 9, 1992 No. 3612-I “Fundamentals of the legislation of the Russian Federation on culture”, Federal Law of May 26, 1996 No. 54-FZ “On the Museum Fund of the Russian Federation and museums in the Russian Federation” , Federal Law of August 22, 1996 No. 126-FZ On State Support of Cinematography of the Russian Federation”, etc.).
Article 114 of the Constitution of the Russian Federation establishes the powers of the Government of the Russian Federation to implement a unified state policy in the country in the field of culture, science, education, healthcare, social security, and ecology. The main direction of policy in the social sphere is caring for people, creating conditions for a decent life and comprehensive development.
In order to implement the provisions of the Constitution of the Russian Federation, guaranteeing the social rights of citizens of the Russian Federation, the Federal Assembly of the Russian Federation has developed and adopted more than 30 Federal laws, some of which have already been mentioned above. Responsible federal executive authorities, through the execution of by-laws of the President of the Russian Federation (decrees and orders) and the Government of the Russian Federation (decrees and orders), aimed at implementing the current Russian legislation in the social sphere, as well as their own acts of federal executive authorities in this area, implement legal foundations of social policy at the federal level.
The regional level determines the directions and mechanisms for the implementation of social policy in each specific constituent entity of the Russian Federation through the development and adoption of acts of legislative (representative) and executive authorities of the constituent entities of the Russian Federation.
The main powers of state authorities of the constituent entities of the Russian Federation in the field of social policy are determined by the Constitution of the Russian Federation and Federal Law of October 6, 1999 No. 184-FZ “On the general principles of the organization of legislative (representative) and executive authorities of the constituent entities of the Russian Federation”.
2.2 Federal social policy and analysis of its financing
The dynamics of government spending on social policy in Russia in 2000-2008 are presented in Table 2.1.
Table 2.1 - Dynamics of government spending on social policy in the Russian Federation in 2004-2012.
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Federal budget (expenses) total (billion rubles) |
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Incl. under the section “social policy” (billion rubles) |
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Share of expenditures under the “social policy” section (%) |
The data show that the main burden is placed on the subjects of the federation, whose income is insignificant compared to the income of the federal budget. Insufficient funds prevent them from making necessary social security expenditures.
Let us consider the development of sectors of the social sphere in 2011-2012, and give a description of their financing.
In 2011, positive trends continued to be observed in sectors of the socio-cultural sphere, including:
1) continued modernization of the sphere of social services in the field of education, health care and culture;
2) development of non-state commercial and non-profit educational and medical organizations, social security organizations, physical education, sports and culture;
3) further optimization of budget expenditures and restructuring of social sector institutions;
Along with the positive results achieved, negative phenomena were observed:
1) insufficient pace of restructuring of social sector institutions;
2) low quality of social services provided to the population free of charge;
3) uncontrolled replacement of free social services with paid ones;
4) inefficiency in spending budget funds, which is largely due to the limited capabilities of the main managers of federal budget funds.
Reducing negative trends through government regulation is carried out, first of all, through improving current legislation, taking measures to modernize the sphere of social services, and increasing the efficiency of monitoring the budgetary sector in the social sphere in accordance with priority tasks.
The concentration of financial resources on solving the most significant problems in the social sphere related to overcoming problems in the functioning of social sectors was carried out within the framework of the implementation of national projects in the field of education and healthcare, as well as a number of social sectoral federal target programs: Federal Target Program for the Development of Education for 2006-2010 years, “Russian language”, “Children of Russia”, “Prevention and fight against diseases of a social nature (2007-2011)”, “Social support for people with disabilities for 2006-2010”, “Development of physical culture and sports in the Russian Federation for 2006-2015", "Culture of Russia (2006-2010)", "Development of Sochi as a mountain climatic resort (2006-2014)".
In the field of healthcare in 2008-2010, work was carried out to implement measures aimed at improving the quality and accessibility of medical care to the population, optimizing the process of providing certain categories of citizens of the Russian Federation with medicines and sanatorium-resort treatment, and ensuring sanitary and epidemiological well-being.
Work was carried out to implement a priority national project in the field of healthcare in terms of developing regulatory legal acts that ensure the possibility of implementing Project activities.
In 2011, significant successes were achieved in the field of healthcare in improving the quality and accessibility of medical care to the population, ensuring sanitary and epidemiological well-being, and improving the demographic situation in the country. This is due to the implementation of the priority national project “Health” since 2010. Federal budget funds in the amount of more than 209 billion rubles, allocated last year to the healthcare sector, became a record for the last decade. Compared to the period when the implementation of the national project began, according to the Russian Ministry of Health and Social Development, there has been a significant improvement in all indicators. The number of local doctors increased by 6 thousand people compared to 2009, including general practitioners, which made it possible to staff medical stations with medical workers and reduce the part-time ratio. This happened thanks to the financing of measures to increase the level of remuneration and the quality of professional training of primary care medical personnel. 1,900 young specialists came to work at the sites. As a result, the share of people of retirement age decreased by 10% among doctors and by 12% among nurses. Additional cash payments made it possible to increase, from the beginning of the Project, the average level of remuneration for primary care medical workers by 2.7 times, and for specialist doctors working in clinics by 2.1 times (in total, 690 thousand workers in the healthcare system received increased wages under the project) . Average wage growth in the healthcare industry was 56.6 percent. Thanks to the Project’s activities for additional training and retraining of doctors providing primary health care, the proportion of local service medical workers who have undergone mandatory retraining has more than doubled. The material and technical base of outpatient health care institutions has been significantly strengthened. Centralized supplies of diagnostic equipment made it possible to reduce the waiting time for diagnostic examinations in municipal clinics from 10 to 7 days over the course of 2 years. More than 10 million examinations were carried out using the supplied equipment. The number of examinations per 1000 residents increased, including laboratory examinations - from 18.3 thousand to 19.6 thousand, endoscopic examinations - from 59 examinations to 61, ECG examinations - from 494 to 547. The most important factor influencing the effectiveness of emergency medical services assistance to the population is to equip health care institutions with modern sanitary vehicles. As a result of the deliveries, every third ambulance operating on the line has been updated, which has reduced the time patients wait for emergency medical care from 35 to 25 minutes. As a result, the mortality rate of the population decreased.
To increase the preventive focus of medical care provided to the population within the framework of the Project, immunization of the population was carried out for the main preventable infectious diseases. During the implementation of the Project, this led to a reduction in the incidence of diphtheria by 5 times, measles by 3.1 times, rubella by 2.6 times, mumps by 30.7%, and whooping cough by 30 percent. The incidence of hepatitis B was reduced by 29.2 percent. In 2011, no outbreaks or epidemics of influenza, rubella measles, or viral hepatitis were registered.
The population was provided with drugs to identify and treat HIV-infected patients. If in 2010 58% of these patients were covered by the full course of prevention, then in 2011 - 71.8% of citizens at risk. More than 60.3 thousand new cases of HIV infection were identified, and 35.0 thousand people were treated with antiretroviral drugs.
The “birth certificate” system allowed for a 35-40% increase in payment for medical care for women during pregnancy, childbirth, after childbirth and in the first year of children’s lives. The funds received for medical care provided (about 1.2 billion rubles) allowed obstetric institutions to purchase the necessary medications and significantly update the material and technical base, as well as increase the wages of obstetric medical workers by 1.9 times.
As part of the Project, additional medical examinations and medical examinations were carried out for 7.4 million people of working age. About 4 million diseases have been identified, of which about 68% are in the early stages.
Increased funding for measures to provide high-tech medical care has made it possible to increase the level of accessibility of the population to high-tech types of medical care, including territorial accessibility. The provision of the population with these types of assistance has increased 3 times. In 2010 - 2011, high-tech medical care was provided to 240.4 thousand citizens. For the first time, a mechanism has been introduced to pay for high-tech types of medical care from the federal budget to medical institutions under the jurisdiction of the constituent entities of the Russian Federation and municipalities. Currently, 73 institutions are fulfilling the state task of providing such assistance.
As part of the Project, construction began on a modular basis of 15 new federal centers of high medical technologies in the constituent entities of the Russian Federation; in 2011, centers were commissioned in Penza, Astrakhan and Cheboksary.
The processes that took place in the Russian education system in 2004-2007 were diverse in nature and determined by a whole set of factors. The most important among them were:
1) state policy in the field of education;
2) social transformations external to education
and economic environment that characterized this period;
3) changes in the regulatory and legal conditions in which the education system operated;
4) trends that have developed in education since the mid-1990s and intensified after the financial crisis of 1998;
5) social attitudes of the population;
6) demographic situation.
The Russian Federation is a country with a high level of education of the population. According to the 2004 census, persons with higher (complete and incomplete) and secondary vocational education amounted to 462 people per 1000 people aged 15 years or more. The level of education of the population is presented in Table 2.2.
Table 2.2 - Level of education of the population aged 15 years and over (according to population census data)
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Per 1000 people of the corresponding age have education |
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Higher professional |
incomplete higher professional |
secondary vocational |
(full) general |
basic general |
initial general |
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change from 1989 to 2004 |
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growth rate % |
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According to the last Soviet census in 1989, this figure was 322 people. Taking into account the reduction in the population of Russia over the specified period from 147.0 to 145.0 million people, we find that the number of those who have higher and secondary vocational education among the population over 15 years of age has increased over 14 years (from 1989 to 2004) 1.4 times.
In the development of the industry, according to the Russian Ministry of Education and Science, there has been a significant improvement in all indicators in the following areas:
1) informatization of education. In 2011, the connection of all educational institutions to the Internet was completed, the total number of which was 52,064. For these purposes, 4.5 billion rubles were allocated in the federal budget for the implementation of this area. At the same time, part of these funds in the amount of 2.5 billion rubles was aimed at providing licensed support for a standard (basic) set of software in all schools and additional software used in educational institutions introducing innovative educational programs;
2) state support for talented youth. Within the framework of this area, 5,350 awards for talented youth were allocated in 2011: 1,250 awards of 60 thousand rubles each. - winners of Russian and international Olympiads and 4,100 prizes of 30 thousand rubles each. - winners of regional and Russian Olympiads. 0.2 billion rubles have been allocated from the federal budget for these purposes;
3) monetary incentives for the best teachers. In 2011, 10 thousand cash incentives were paid in the amount of 100 thousand rubles each to teachers who were winners of the competitive selection. The total amount of financing amounted to 1.0 billion rubles;
4) transfer to the ownership of subjects of the Russian Federation of buses for educational institutions located in rural areas, educational and educational-visual equipment for equipping general educational institutions;
5) state support for constituent entities of the Russian Federation implementing comprehensive education modernization projects, including changing the wage system and increasing teacher incomes; 21 regions received federal support for their comprehensive modernization projects. The federal budget for 2011 provides 4.05 billion rubles for support;
6) state support for educational institutions introducing innovative educational programs. In the general education system, annually, starting from 2010, 3 thousand schools are supported, introducing innovative educational programs with a funding volume of 3.0 billion rubles;
7) state support in 2011 for the training of workers and specialists for high-tech industries in state educational institutions of primary vocational and secondary vocational education, introducing innovative educational programs.
In 2011, 1.8 billion rubles were allocated for these purposes. At the same time, the volume of co-financing of these programs from regions and enterprises in percentage terms exceeded the share of extra-budgetary funds supported by universities. This once again indicates the high demand for non-university education from the economy.
The implementation of the national project “Education” in 2011 showed that support for initiatives makes it possible to finance the most sustainable and popular areas of project work in the education system.
In accordance with the tasks of transitioning the Russian economy to an innovative path of development, overcoming the danger of the country lagging behind global trends in the country's economic and social development in the field of education, the modernization of the education system continued in 2012, aimed at improving the quality of education, ensuring its accessibility, developing lifelong education, increasing investment attractiveness of the education sector, introduction of new financing mechanisms, formation of an effective market for educational services.
The volume of budget funding for the education system was increased; work on normative legal support for the development of the education system has intensified; the formation of the foundations of a state-public education management system has begun; academic freedoms of vocational education institutions have been expanded; various mechanisms have been tested to ensure accessibility of higher and secondary vocational education; A wide range of experiments were carried out to update the content and structure of education, educational lending, and the introduction of new organizational and economic mechanisms for the development of this area.
An experiment was conducted to introduce specialized training in secondary (complete) general education institutions, aimed at introducing early career guidance for schoolchildren. Specialized training in the senior classes of general education schools, interaction of the senior level of general education with institutions of primary, secondary and higher vocational education.
New educational technologies were introduced, informatization of the educational process, and the capabilities of educational institutions to use the Internet as part of the implementation of general education programs expanded.
From September 1, 2008, the amount of scholarships for students of federal state educational institutions of primary and secondary vocational education, as well as students of federal state educational institutions of higher vocational education, has been increased, which currently amounts to 400 rubles per month and 1,100 rubles per month, respectively, instead of previously provided 315 rubles and 900 rubles, respectively.
The main goal in the field of culture was the preservation of the culture and art of the Russian Federation, its national traditions, the preservation of a single multinational cultural potential and the creation of conditions for the integration of the culture of the peoples of Russia into the world cultural space, preserving the opportunity for all social strata of the population to access the values of domestic and world culture.
Over the past 5 years, significant progress has been made in this area.
Since the beginning of 2007, the production of 769 film and video films has been completed.
Federal budget funds in 2007 were allocated to 22 publications for the disabled, 47 publications for children, 22 for teenagers and youth, 5 publications for veterans, 25 literary and artistic publications, 85 cultural and educational and 167 socio-political publications.
Publishing houses run by Rospechat and JSC of industry affiliation with a 100% stake in state ownership issued 66.1 million copies in 2007. books.
In the field of electronic media in 2007, state support was provided to organizations, regardless of their organizational and legal form, for the production and (or) distribution and replication of socially significant programs and the creation and maintenance of sites on the Internet that have social or educational significance. 322 projects were considered, and 129 recipients of government support were selected. The amount of financial support for the production of socially significant programs in 2007 amounted to 455.75 million rubles.
The main goal of state policy in the field of culture, art and mass communications is the development and implementation of the cultural and spiritual potential of the nation as the basis of the integrity and sustainable, dynamic development of Russia.
In 2008, lists of grant recipients were determined to support creative projects of leading professional groups of folk music and choreographic art for 2008 - 2010, leading academic musical theaters, choral and chamber music groups in 2009 - 2011, federal state educational institutions of secondary professional and higher professional education in the field of art in 2009 - 2011, etc.
Now let's look at financing in more detail. The federal law for the section “Social Policy” approved budgetary allocations in the amount of 286,410.3 million rubles. According to the updated budget schedule for 2007, federal budget expenditures were reduced by 3,499.9 million rubles, or 1.2%, and amounted to 282,910.4 million rubles.
The execution of federal budget expenditures under the “Social Policy” section in 2007 was carried out by 25 main managers of federal budget funds. The largest of them are the Russian Ministry of Defense (41.2%), the Russian Ministry of Internal Affairs (19.3%) and Rosstroy (11.3%), which account for 71.8% of the volume of federal budget expenditures distributed by the main managers of budget funds for this section.
2.3 Strategy for modernizing social policy
At the moment, in economic and social policy, the country is faced with two different tasks that coincide in time. One of them is the need to reduce the social and economic costs of the crisis, those that arise always and everywhere in such cases. The other is innovative and modernization development, a path that Russia cannot help but take; it requires changing the parameters of social development, including changing and modernizing institutions in the social sphere. That is, we have to find answers to large-scale social challenges. And it is absolutely clear that we cannot solve everything at once, here and now - many issues fall on the big agenda of the decade. In order to modernize not only the social sphere, but to enter a new stage of economic post-crisis development with a strong social policy, we must understand and see the challenges that face the country, the economy, society, and institutions. The basic parameter on which all other social parameters depend is the labor market. This is especially true for Russia, where the absolute majority of the population are hired workers, and labor income determines the level of well-being of the entire population. For many years, since 1990, it was possible to avoid the most extreme, negative social scenario in the labor market - the explosive growth of unemployment. The Russian labor market has always been characterized by a moderate decline in employment and a moderate increase in unemployment. But this benefit has never been free: the labor market has always paid a certain price for it. And this price is a deep drop in wages, which predetermined all trends in the field of income. In fact, for many years we have not had a real increase in wages, but only its restoration to the level that preceded the period before 1991. And events in the labor market developed exactly according to the same scenario during the current economic crisis. As shown in Figure 2.1 the curve of industrial production dynamics is followed by a slight decline in employment and a rapid repetition of the wage curve. The difference, perhaps, is that if in previous crises wages fell more deeply, then last year - according to preliminary calculations, however - they fell more slowly than the volume of industrial production. The main parameters of the labor market are presented in Figure 2.1
Figure 2.1 - Main parameters of the labor market, 2007-2009.
In order to develop and adopt some measures to protect the labor market, it would be necessary to represent the structure of the labor market. However, the problem is that it is not very visible. Employment is mostly transparent in large and medium-sized enterprises; there is a clear connection with GDP, but less than half of the economically active population work for them - 49 and 37 million people. Another 6 million people. is visible employment in small enterprises. It is known that a much larger number of problems arise in this segment: on the one hand, there are many shadow and dead enterprises, and on the other hand, real businesses, when faced with administrative problems, do not always strive to acquire a legitimate position, and strictly speaking, this is no longer the most transparent employment. Finally, there is a large group of employed people who make up “others”, or the informal employment group. This is 13 million people, or 18-20% of the economically active population. In principle, no impulses to restructure the labor market reach this group of employed people. Meanwhile, attempts to influence the labor market are being made, for example, in the form of regional employment programs. However, they affect less than 3% of the economically active population, and therefore even increasing the effectiveness of such programs will not improve the overall manageability of the labor market. The indirect impact on employment is now carried out through support for a number of large and medium-sized enterprises, although one cannot equate financial support for enterprises with employment support. These are similar concepts, but they are not the same thing.
Thus, one cannot help but admit that in fact most of the labor market is outside the field of political influence, outside the field of government control. If we want to modernize the economy, then it is necessary to achieve employment restructuring, which, in turn, sets us the task of creating institutions and mechanisms for effective influence on the labor market. Also basic for any social system is the attitude of society towards the elderly disabled population. In addition to searching for mechanisms of financial stability and opportunities for additional funding from the state budget of the pension system, attention should be paid to the participation of the population in it. Over the years, the pension system has been built as a clear tool to combat poverty. In Figure 2.2. presents the main characteristics of the pension system, 1990-2007.
Figure 2.2 - Main characteristics of the pension system, 1990-2007.
As can be seen from Figure 2.2, the average pension has reached the subsistence level. The pension system has an extremely low replacement rate of 25%. According to forecasts, thanks to valorization and indexation of pensions, it will be possible to raise it to 40% in the coming year. But not for everyone. A relatively high replacement rate will be achieved in relation to persons with relatively low incomes. And groups of workers with average and high salaries receive practically nothing from the innovations in the pension system. Their replacement rate is already well below 25%, and this is only 6-8% of their average salary. This predetermines the extremely low interest of this part of the population in participating in the pension system. This part of the population cannot be addressed only by a program related to the valorization of pension rights, if only because this is a relatively young age cohort that is not covered by pension innovations. One way or another, this problem has to be solved. According to IISP, which is confirmed by many other studies, only 38% (less than 40%) of workers actually pay contributions to the pension fund in full, while the rest do not pay at all, or pay only from part of their earnings. And this is also one of the mechanisms for destroying the financial stability of the pension system. Today's social protection institutions are built on the categorical principle of providing social benefits and allowances, and there is already a complete imbalance: social protection of the population, which is addressed to the poor, mostly ends up in the non-poor segments of the population. At the same time, about half of our really poor households do not have access to the social protection system. The time has come to really target this system, to redirect cash flows to those social groups that really need social support. It must be recognized that most social transfers today are not targeted, and non-poor households should not be the main recipients of social protection. There is another powerful social challenge in addition to the tax burden and monetary methods of supporting the elderly population to be able to work. A challenge that is often overlooked and not fully realized when we analyze the negative impact of demographic processes on the current social state of society and on the future. In the absence of a market for social services, real labor transfers from the able-bodied economically active population are today forced to be transferred to the benefit of the disabled. Data on social support can be seen in Figure 2.3
Figure 2.3 - Recipients of targeted social support, 2011
It is the economically active population in the most working ages - from 44 to 54 years old - who, not only with money, but also with their time and efforts, are forced to support several generations of their family members - children, sometimes also grandchildren, and elderly parents. And if in relation to children the system in the form of preschool institutions exists at least in some form, then in relation to the elderly there is an institutional vacuum. People are forced to bear the heavy burden of caring for the elderly, sick, and disabled. And this is truly a challenge: an increase in labor productivity and the efficiency of output of the active population in such a situation is hardly realistic. Thus, population aging is a challenge to the entire system of social institutions, and not just the pension system. Social policy in general works and operates at different poles with economic policy. Let's consider demographic imbalance. The pension system is addressed to the elderly population, and to children - a certain set and range of events and actions. And the working population does not receive social support to perform those functions that are actually on the list of their responsibilities. As for with socialimbalance, then the middle class, that is, a relatively developed and wealthy part of society, makes up 20%. This group of the population ensures its well-being primarily through its economic activity. The low-income population is supported by the state budget. The lower-middle class—the absolute majority of the Russian population, 70%—does not receive reliable social protection instruments. And finally, the picture looks the same in terms of the regional structure of Russia. Figure 2.4 presents intergenerational transfers.
Figure 2.4 - Intergenerational transfers: money and services 2011
Yes, any state is obliged to help weak social groups. But if we want to make the transition to sustainable economic growth, we need to balance the policy of support with the policy of creating institutions for social development. The weakness and sagging of the “middles” is true evidence of the absence of reliable institutions for social development. And this is a different set of institutions and instruments than benefits and pensions. These are, first of all, institutions for creating a favorable business environment, stimulating consumer demand, developing bank mortgage lending, pension insurance, and access to quality education and healthcare systems. That is, the formation of a market for social services that will truly promote business activity, and not act as a brake on its growth.
3 Prospects for improving social policy in Russia
3.1 Problems of development of social policy in Russia
The foundation of a new social policy that implements the social and humanitarian responsibility of the Russian state to its citizens should be a legally enshrined minimum of social benefits guaranteed to each citizen, taking into account the regional characteristics and historical and cultural traditions of all peoples of our country. In the near future, it is necessary to concentrate efforts on those urgent problems, the solution of which will help significantly improve people's living conditions and strengthen social support for reforms.
Such problems include:
1) progressive degradation of fixed assets, the wear and tear of which is not compensated by new capital investments. Currently, the physical and moral wear and tear of fixed assets has reached 60%, and the technological gap between almost all sectors of the national economy and the world level is rapidly increasing. At the same time, there is practically no equipment update, for 1992-1993. investment activity was halved, R&D costs were reduced several times, most of the depreciation deductions were not allocated to investments, but were actually withdrawn from the reproduction process. The deepening decline in production, which exceeded 50% in industry, and 70% in its knowledge-intensive industries, has everywhere led to a significant underutilization of production capacities, which does not allow maintaining their efficient operation and technological regime. The efficiency of social production has sharply decreased (specific electricity consumption per unit of GDP increased by 23%, labor productivity fell by 28%), which reflects a general decline in the competitiveness of the Russian economy. In fact, the economy has entered a mode of narrowed reproduction, an irreversible process of destruction of the country’s scientific and industrial potential is developing, and there is an increasing degradation of the production apparatus in the sectors of material production;
2) deindustrialization of the national economy, a clear shift in the direction of making its structure heavier due to the rapid decline in knowledge-intensive industries and the production of consumer goods, an increase in the share of primary industries (primarily the fuel and energy complex) and the service sector (financial and trade sectors) in the structure of production and investment , the reduction in the share of mechanical engineering in the structure of social production and the increase in the share of the fuel and energy complex indicate the structural degradation of the Russian economy, a progressive reduction in the production of highly processed goods, and the collapse of industries that are the basis of modern economic growth and maintaining employment;
3) the threat of mass unemployment and impoverishment of a significant mass of the population due to both an absolute reduction in production and deindustrialization, during which the creation of new jobs in the primary industries and in the service sector does not compensate for the release of employees from manufacturing industries. With the further deepening of the industrial recession, hidden unemployment, currently reaching up to 20% of those employed, will inevitably turn into an open form, which will create a serious threat of uncontrolled growth of social tension and further destruction of human potential;
4) the export of capital, its binding in speculative and intermediary operations, due to the resulting isolation of trade and financial capital from production capacities, as well as the high uncertainty of the effectiveness of capital investments due to galloping inflation and uncertainty of property rights, the underdevelopment of the legal system for ensuring investment activity and resolving economic disputes. The export of capital, exceeding $10 billion per year with an insignificant amount of import, as well as the concentration of banking activity in financing speculative activities, make it impossible to maintain expanded reproduction and update the country's production apparatus. The volume of foreign exchange reserves accumulated by Russian business entities, withdrawn from the economic turnover of the irrational economy, amounts to 20-30 billion dollars and is comparable to the annual accumulation fund.
5) brain drain and degradation of human potential, disintegration of society and the emergence of the threat of class conflicts, destruction of the foundations of social stability. The growing polarization of the population (the income gap between the top and bottom ten percent of the population has reached 11 times and continues to grow) is accompanied by the impoverishment of a significant part of the population (27% of the population lives below the poverty level), a sharp decline in the level of social security and government spending on social guarantees;
6) criminalization of economic activity, undermining market competition and government regulation, causing a rapid increase in the weight of the shadow economy and the degree of real monopolization of the national economy. According to official estimates, the shadow economy covers 40% of trade turnover and 28% of public services provided to the population; a significant portion of enterprises in the financial and trade sectors and the service sector are under the influence of criminal structures. The criminalization of public production seriously complicates the creation of new enterprises, suppresses competition, and is accompanied by corruption in government bodies. The significant scope of corruption, in turn, sharply reduces the efficiency of the state apparatus, including the activities of law enforcement agencies, and makes it impossible to productively use a large arsenal of methods of state regulation of the economy, including legal support for market competition mechanisms. The merging of the state apparatus with criminal structures sharply complicates the achievement of the goals of economic stabilization, active structural policy and social protection;
7) galloping inflation, fluctuating between 10-25% per month, extremely hampered long-term economic activity, production development, investment and innovation activity;
8) the threat of destruction of the country’s transport and energy infrastructure, an increase in the likelihood of accidents on energy and transport networks due to long-term underinvestment in their maintenance, renewal and development;
Only by 2000 was this trend overcome. Of course, the listed problems, some of which have become acute and threaten the economic security of the country, are interconnected and caused by common reasons. These reasons are divided into two groups - those caused by structural imbalances in the economy and those caused by the inadequacy of the ongoing economic and social policies. If overcoming the first group of reasons will require a long time, then the second group of reasons can be eliminated quite quickly, which is, in turn, a necessary condition for the successful elimination of the reasons of the first group. This requires the implementation of appropriate active economic and social policies aimed at solving the problems listed above and eliminating the causes that determine them.
When assessing the current state of social policy in Russia and the features of its socio-economic transformation, two aspects are particularly highlighted:
1) socio-economic according to the criterion of post-industrial changes occurring in developed countries of the world, as well as in relation to one’s own historical experience and traditions;
2) geo-economic - according to the place and role of the country in the modern world economy, in global and regional economic structures and institutions.
These two interconnected sides of the same process, with the determining importance of the first side, show that issues of social policy, especially in the long term, cannot be considered in isolation from the prospects for the economic development of the country. It is impossible to implement effective and efficient social policies without achieving high, sustainable rates of economic growth. If social reforms are not linked to economic ones and are aimed at achieving the dynamic development of Russian society, then, of course, the main social policy measures will be doomed to failure.
The concept of modern social policy in developed countries of the world is formed under the influence of three ideological trends:
1) the ideology of a market economy of small-scale commodity production, that is, the ideology of the traditional middle class;
2) the ideology of the market capitalism of free competition;
3) ideology of the welfare state.
Each of these ideologies has its own advantages and disadvantages.
The crisis in the ideology and social policy of the welfare state has revived the ideology of free competition capitalism and its utopian Adamosmith concept of the omnipotence of self-organization of the free competition market. However, public opinion in industrialized countries is inclined to believe that there can be no talk of dismantling the ideology of the welfare state.
The social policy and ideology of Russia in the transition period should be based on a catch-up concept that takes into account the experience and mistakes of other countries, progressive trends in social and ideological development. The main principles of the social strategy should be the following:
1) work morality and business ethics, the combination of personal and public interest, the union of labor and property;
2) a combination of universality with a differentiated approach to various groups of the population, a balance in the relationship between the family and state budgets when solving social problems (housing, utilities, transport services, etc.) as the level of labor income increases and production efficiency increases;
3) a combination of complexity with a targeted, targeted approach to solving social problems, establishing minimum living standards at the federal and regional levels, including socially acceptable standards for the provision of socially significant services in combination with targeted, targeted assistance to particularly needy groups of the population;
4) strengthening the preventive targeted nature of social policy through the use of social monitoring and analysis of social indicators, highlighting those that show a situation of social explosion.
In this regard, it is necessary to increase flexibility and dynamism in the conduct of social activities and strengthen the role of social forecasting.
An extremely important problem is choosing the right social guidelines. An analysis of the current socio-economic situation and the progress of reform in Russia indicates the complexity of the chosen strategy and tactics of socio-economic transformations and, above all, the determination of the ultimate goal of reform. The expansion of the zone of social disasters was a natural result of the implementation of a development strategy, the main goal of which was the formation of a market economy. The creation of a market economy acted as an end in itself, and not a means of achieving a more efficient economy and increasing, on this basis, the level and quality of life of the population.
Unfortunately, the attitude towards economic development and reforms as an end in itself continues to dominate in the development, justification and decision-making in the social policy of the state.
When determining social priorities, in our opinion, the theoretical and methodological basis should be the theory of the social state, which is the official doctrine that determines the formation of the state structure of the Russian Federation. However, as most researchers note, in practice the principles of the “classical liberalism” era, based on the ideology of individualism and non-interference in economic and social life, are not implemented in practice. And, accordingly, Russia does not yet meet the criteria used in world practice to characterize a welfare state.
According to the theory of the welfare state, the program goal of the state is to provide decent living conditions for the population 1 . The state is obliged to create conditions for human development. The mechanism of state regulation should be aimed at ensuring the well-being of the entire population. The task of government authorities in this case becomes to find a balance between market self-regulation and government intervention, dosing the volume of economic freedom and government social guarantees. In this regard, the problem of integrating state forms of regulation of economic and especially social processes into the market economy is of particular importance. Regulation of social processes and implementation of social policies aimed at reducing social costs is becoming one of the main functions of the state.
The main goal of social policy is a significant reduction in poverty; increasing the protection of socially vulnerable households that do not have the ability to independently solve social problems and need government support; ensuring universal accessibility and socially acceptable quality of basic social goods.
The main directions of social policy should be focused on the following long-term goals:
1) achieving a level and quality of life of the population that corresponds to the national ideals and standards of economically developed countries, including in the field of education, healthcare, clean environment, raising children, ensuring the economic rights and freedoms of citizens, protecting their persons and property from crime ;
2) ensuring sustainable and high rates of economic growth and scientific and technological progress, the competitiveness of products of domestic producers in the domestic and foreign markets, restoring Russia’s position as one of the leading scientific and industrial powers, effective integration of its economy into world economic relations;
3) ensuring favorable economic conditions for strengthening sovereignty, territorial integrity, national security and defense capability, international authority and influence of Russia, including in countries - former Soviet republics, protecting the legitimate rights and interests of Russian citizens and organizations abroad;
4) development of human potential, harmonization of social relations (that is, providing conditions for the formation of a system of social groups and stable connections between them; creation of a system in which relations of complementarity and cooperation, rather than conflict and struggle, dominate, high social mobility of the population, support for socially acceptable self-realization of each individual), weakening social polarization and preventing the disintegration of society, excessive strengthening of social differentiation, restraining the transition of conflicting interests between social groups into an antagonistic form.
3.2 Ways to improve social policy in Russia
Modern social policy of the Russian Federation is far from ideal. The experience of its functioning during the transition to a market economic mechanism indicates that full-fledged social protection of the population and the effective functioning of the socio-cultural sphere have not yet been achieved. Such facts as the meagerness of pensions and benefits, the virtual elimination of free health care services, and in many respects education, and the stagnation of culture and art are well known. These problems are to a large extent responsible for unprecedented social stratification, undermining national unity.
Their solution at the present stage is expected through the implementation of a number of reforms in the field of social policy: healthcare, education, finances of the pension system. They are designed to rebuild the mechanism of financing the social sphere, increase its efficiency, and ensure the formation of a full-fledged financial base for extra-budgetary funds, education, health care, and culture. It is in the context of these reforms that the problems and prospects for the further development of the social policy of our country should be considered. For the development of social policy, traditional and modern requirements for its chains and tasks are of decisive importance . Today, social policy is not only, and not even so much, support for socially vulnerable members of society, but a key factor in the formation and development of human capital.
Properly implemented social policy helps to increase human capital. The pace of scientific and technological progress, the level of organization, culture and labor productivity are derived from the qualities of a person, or human capital, which means that investments in people have the greatest return. Thus, we come to the conclusion that considering a person as an object of social policy is the goal of creating a prerequisite for the accumulation of human capital, since it is the person who contributes to socio-economic development and is the basis for the growth of the national economy.
In a modern economy, where people are placed at the center of the entire system, and not production, material or financial resources, social policy must ensure quality and accessibility b socially significant benefits - education, healthcare, culture. This brings benefits to society and the country's economy, because is an investment in the most important asset - a person, ensures the preservation, restoration and development of the intangible component of social wealth.
Let us highlight the imperatives for improving the social policy of the Russian Federation at the present stage - recognition of its most important role for the development of the productive forces of society, which cannot be ensured with excessive commercialization of the social sphere.
This implies the need to socialize financial policy, and public policy in general. The main share of budget expenditures falls on defense expenditures, servicing the public debt, and public administration. The social sphere remains in the shadows. A corresponding revision of budget priorities is necessary not only from a social point of view, but also from the position of the interests of the state as a whole. This will make it possible to most effectively solve problems such as a reduction in the working-age population, a deterioration in the qualifications of the workforce, and a decrease in the competitiveness of domestic goods and firms.
Today's realities of transformation of the country's social policy, in particular, the mechanism of its financing, are not always and not fully adequate to the conditions discussed above. I will try to show this using the example of some reforms in the social sphere, and in this regard, put forward and argue some of my own assumptions.
In the social sphere, transformations are planned in the education and health sectors. The “Education Modernization Program” (within the framework of the “Main Directions of Social and Economic Development of the Russian Federation for the Long-Term Perspective”) involves the interrelated development of content I education and restructuring of its organizational, economic and financial mechanism.
The following events are planned:
1) stimulating effective demand for education through tax incentives (no income tax is levied on citizens’ expenses on education), developing a system of educational loans;
2) a combination of the state order for vocational education with the practice of direct contracts with enterprises and citizens, the allocation of a regional component of the state order (with its financing from the budget of the constituent entity of the Russian Federation);
3) supplementing budget financing with funds received from the effective management of the property transferred to them.
These measures are adequate to the modern role of education in society, and it is difficult to argue against them. But their practical implementation has currently identified a number of difficulties. Educational loans have not become widespread. It is appropriate to recall that the Government has been trying to expand the scope of mortgage lending for several years, but the results achieved are very modest. Educational lending (like mortgage lending) presupposes that banks have long-term liabilities, therefore, in conditions of their shortage, it is unlikely to become widespread.
In general, the addition of budget funds with financing received from enterprises and households is a positive trend, although we must not forget about the constitutional guarantees of free education. One should agree with the opinion about the need to form a standard guaranteed norm, a social standard (as has been done in relation to healthcare, where the norms of medical care are clearly defined). Weighted standards that take into account the economic interests of consumers and “producers” of educational services should become the basis for the formation of a financial mechanism in the field of education.
The restructuring of the financial mechanism of healthcare is of a “financial-defensive” nature. The Ministry of Health and Social Development of the Russian Federation sets three main tasks for the reform: to clearly distinguish between free and paid medicine and thereby protect the state from citizens’ demands that exceed its capabilities; against the backdrop of a reduction in the unified social tax since 2005, to prevent a decrease in financial flows into the compulsory health insurance system, to protect its funds from an absolute reduction; encourage health care institutions to use internal sources more effectively. Their implementation is necessary to normalize the current situation in healthcare, but cannot solve its root problems.
To transform the domestic healthcare system, it is necessary, first of all, to choose a budgetary, entrepreneurial or insurance model for its financing. There are different points of view on this matter, supporters of each of which note its advantages. As I believe, the entrepreneurial and budgetary models in Russia cannot be taken as a basis: the first due to the lack of the necessary financial resources among the majority of the population, the second due to the limited capabilities of the federal budget. In the United States, for comparison, budget expenditures on the healthcare system in 2004 amounted to $500 billion, which is more than three times higher than the consolidated budget of the Russian Federation for the same period. And this despite the fact that the US has an entrepreneurial model for financing healthcare, and the budget provides for those who cannot afford private insurance.
As citizens' incomes increase, their funds will play an increasing role in financing health care. But today the most acceptable option should be considered financing from health insurance, supplemented by resources from the population and the budget.
The largest role in increasing the financial resources of healthcare - the Compulsory Medical Insurance Fund, the Pension Fund, the Social Insurance Fund - is played by the Unified Social Tax, which forms the bulk of their income. Currently, the size of the unified social tax, and, consequently, the income base of extra-budgetary funds, is very low. This happens mainly due to the low tax culture in Russia and the desire to avoid paying mandatory payments by any means. The scale of concealment of the population’s income—the tax base under the Unified Social Tax—is very large. The shadow economy reaches about 30-40% (according to various estimates) of GDP, which leads to an insufficient amount of UST revenue. And in “legal”, official business, it is very common to pay part of the salary in unaccounted cash (“black cash”), with which the unified social tax is not paid.)
This state of affairs undermines the insurance principle of generating funds from social extra-budgetary funds. The state is taking the path of directly financing the payment of pensions, benefits, and the provision of medical services. In essence, the right of employers not to pay additional wages to employees is legalized. Wages in the context of the implementation of the insurance principle of financing social protection consist of two parts: monetary remuneration to ensure current consumption and social insurance to cover future needs (pensions, benefits, medical services).
Attempts to increase the collection of unified social tax and to bring a significant part of economic turnover out of the shadows are unlikely to be successful in the near future. The continuation (and expansion) of financing the social sphere from the budget is unjustified. Firstly, the latter’s funds are not unlimited, and secondly, social insurance inherently cannot be provided at the expense of the budget, i.e. through other taxes. One should not count on an increase in the “consciousness” of workers who demand to pay them “white” wages - employers clearly dominate the labor market of the Russian Federation and impose their own rules of the game on employees.
Transferring the function of payer of payments from the employer to the employee is the most promising way to improve the mechanism for financing social extra-budgetary funds. With this approach, the employee will have an adequate idea of how much he has paid to extra-budgetary funds and what payments he can count on. The social component of wages will be more clearly understood, and its non-payment will be regarded as underpayment of labor, theft from the employee of part of his future pension or benefit. Considering all the difficulties associated with a radical restructuring of the fund financing system, it is rational, in my opinion, to start with a partial transfer of the function of paying insurance premiums from the enterprise to the employee in some regions (as an experiment). Such an experiment will help identify the shortcomings and bottlenecks of this scheme and improve the new financial mechanism. Proposals to supplement compulsory social (and medical) insurance with voluntary insurance, on the basis of non-state pension funds, which play a large role in economically developed countries, deserve special consideration. There is a certain potential in this direction, but one must take into account both the significantly lower level of income of the population in Russia and the possibility of abuse in this area - even in the United States there are scams with pension savings.
Summing up the consideration of the prospects for social policy in the Russian Federation, I would like to say that the economic development of the country and the increase in the financial base of the social sphere are closely interconnected. On the one hand, positive economic dynamics and growth in national income make it possible to increase the amount of resources in this sector. But the activation of social policy today also plays a significant role for economic growth and development, because directly affects labor productivity, quality and competitiveness of domestic goods. Therefore, it is especially important in conditions of growth of the real sector
economy to provide an effective mechanism for financing social policy and increase the flow of resources into this area. This will determine the dynamic development of the economy in the future, on its basis - a new expansion of the financial base of social policy, i.e. “cooperation” between social policy and economics will be formed, which is the real basis for sustainable development, in which, against the backdrop of economic growth, the individual and society develop harmoniously.
Conclusion
Today Russia is in a difficult socio-economic situation, which is due to its difficult and confusing process of socio-historical development. Our society faces thousands of unresolved problems. These problems are extremely contradictory and multifaceted. Demographic and environmental problems come to the fore, which, in turn, are generated by various kinds of social problems.
The current situation requires the immediate adoption of special measures aimed at changing it. But it so happened that the people themselves, each individually, cannot influence this situation; the system “man - society - state” is too complicated, and everyone in it is just a small cog.
Therefore, at the present time, it is simply necessary that all required measures to improve the current situation be taken “from above” (i.e., through government decisions) and smoothly introduced into the complex system of solving social problems. State actions in this area are usually called social policy. in turn, should contribute to the harmonization of the interests of the individual and society, guarantee the protection of human interests, his rights and freedoms.
One of the main tasks of social policy at the present stage is the social protection of the population from the negative consequences of market relations in the economy. This involves maintaining a balance between cash income of the population and commodity resources; creating opportunities to improve the living conditions of citizens; development of the service sector for the population, satisfying their demand for quality goods and services; expansion of the material base for strengthening the health of the population, increasing its education and culture. Also, an important place in state policy belongs to ensuring social justice in society.
During the work, its main goal was achieved, i.e. studied the theoretical foundations of social policy and the main mechanisms for its implementation in practice.
Thus, social policy, in a narrow sense, implies, first of all, government actions aimed at the distribution and redistribution of income of various members and groups of society, and, in a broad sense, it is one of the areas of macroeconomic regulation designed to ensure the social stability of society and create, as far as possible, the same “starting conditions” for all citizens of the country. The essence of social policy also lies in the fact that it 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 its main social groups. As for the directions of social policy, there are usually two of them: social policy in a broad sense, which covers decisions and activities affecting all spheres of life of members of society, and social policy itself (policy in the field of social protection).
Studying the features of modern social policy in Russia and the experience of foreign countries in this area, it became clear that today our state is faced with a choice of which development path to take in social policy. And in order to correctly solve this problem, it is necessary to take into account not only your own experience, but also the experience of foreign countries in this area.
One of the mechanisms for implementing social policy is the development and implementation of various types of social programs.
Social programs in Russia are implemented through three levels: federal, regional and local. The main problem in the implementation of these programs is their underfunding. In general, they are called upon to solve long-standing problems of our society.
Thus, social policy is one of the most important components of the life of any society, but the level of its development directly depends on the level of development of this society. And, apparently, our society has not yet matured to such an extent that it can live without shocks. But the state makes every possible effort to mitigate these shocks and tries to prevent their occurrence at all. The main thing here is that efforts in this direction come not only from above, but also from below, so that each of us realizes our importance in this world.
List of sources used
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