2.2. Social Policies
The problems
of establishing a social policy
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The formation of a model of social policy,
the
justification of the role of government in solving problems
of social welfare policy, the imposition of influence and
mechanisms between different levels of government and
social service institutions are among the most difficult
problems to solve in the switch from one economic system
to
another. This is especially difficult in the change from
a
centralized economy to a competitive society.
It is impossible to overestimate the importance
of choosing
the correct social policies, inasmuch as the goal of this
transformation is not simply the support of the most
important elements of social spending, the cushioning of
the
results of economic and political crises, and the settlement
of social conflicts. The most important reason is that one
is aiming to create the social foundation upon which this
change will be based. This will guarantee the
irreversibility of this transformation, provide a sense
of
social partnership and, finally, will help establish and
support government powers.
There exist several important characteristics,
as we see
them in today's situation, which must comprise this model
of
social policy.
Firstly, the policy must have a transitional
character to
it, and thus should include elements of the old system along
with the seeds of a future one. It is most likely that the
final model of the social policy will be significantly
different from the one which would be most effective today.
Furthermore, considering the formidable national, ethnic
and
cultural differences, the economic and political situations,
the territorial relationships that exist in the former
Soviet Union, those states that have declared themselves
independent countries will probably have very different
models of social policy, different levels of government
involvement in the welfare sectors of the economy, different
ways of distributing authority at governmental levels in
political, social and other spheres. All the same, previous
experience gives evidence that it is extremely dangerous
to
demolish old systems of social services and wish to go
immediately to new forms. In conditions of severe financial
crisis and economic and political instability, this would
mean an almost complete disengagement of the most important
social institutions, the re-creation of which demands years.
Therefore the social transition must be managed gradually
and with sufficient care.
In the transition stage, the dominant assignment
of the social policy must be the protection and support
(as much as possibilities allow) of the existing system
of public services and a gradual process of their extension
at the expense of new forms and a new competitive economy.
The gradual and transitive nature of the social reform is
tied to the psychological inertia in the population. New
systems of wage payments, the transition from social guarantees
and services toward social insurance and new forms of medicine
and education need not alienate the population. For the
public, these are the first and most palpable results of
reform.
Second, the social policy and its results
must not simply blend completely with the economic reforms,
but the measures must be play an organic part in the process.
One must examine the changes in the social sphere and the
most difficult processes as unique indicators and limiting
factors to the the general economic transformation. From
these positions comes the realization of the most vital
changes, as if independent from the thought of the public
or at the expense of the public, the road to the strengthening
of social stresses, the seizure of reforms and the loss
of control over the social changes in the country. The inertia
of these processes, loss of the orientation of the public
toward reforms, fanatical faith that things will get better
all by themselves, smooth out the appearances of social
dissatisfaction but generate its potential, but accordingly
the strength can be seen in the results. But the main thing
in these processes is not even their likelihood or strength
of a social explosion, but the appearance of new models
of behavior for the public, not connected with the direction
of reforms and not controlled by government institutes.
There begins a sense of unpleasantness regarding the reforms
which is at the final expense of a fall in government rule
at the first level. The population, not believing in those
that hold power, try to solve their problems by themselves,
sometimes legally, but more often by illegal means. The
criminal situation gets worse. The most active part of the
population tries not to take part in reforms, but to go
abroad. To carry out reforms with the public in such conditions
is practically impossible. That is why we consider that
in the conditions of post-socialist reform, programs tied
to different transformations in the economy, including the
structure, institutions, properties and institutional forms
are necessary. Measures in the framework of these programs
must be coordinated in time. It is important so that the
administration can formulate a corresponding program of
measures in society and orient the population toward one
or another action within the framework of the reforms --
and not outside them.
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Thirdly. Especially important from the viewpoint
of the creation of the social policy is the determination
of subjects and objects. Considering that the reforms were
initiated from above, the social activity and readiness
for them was low. The special role of a defined social policy
must be held by the government. The social transformation
process must not be spontaneous and unregulated. The executive
programs must have fully concrete directions and goals.
This is especially important because the liquidation of
the nomenclature and its domination is impossible without
the liquidation of socialism as a socio-economic system.
That means that the creation of new society formed by new
social structures will exist -- and already exists -- in
the form of sharp social conflicts.
Social policy right away revealed itself
to be a hostage to
political opposition. Used in its capacity as a means to
attract supporters, the majority of reformists, and
conservatives too, could not surmount the difficulties in
that sphere of stereotypes. At the stage when these
campaigns were beginning to be felt, the policy had an
obviously populist character, hiding serious problems which
are being felt today. It is highly likely that the absence,
until now, of a thought out social policy of the
administration and president of Russia will demand in the
future highly contradictory steps which will not help the
situation of the public, but will hurt the general economic
and political situation.
A few words about the objects of social
policy. Examining
the policy today, one sees a system of alms distribution,
with so-called unprotected groups as its main object of
concern. However, a transition of such global proportions,
the changes encompass practically all strata of the
population. Besides that, in countries where, still at the
beginning of reforms, from 50 to 80 percent of the
population found itself at poverty's doorstep, to speak
of a
poll regarding social support is rather difficult. One must
speak instead about going toward different
methods of
support, of at least a minimum standard of living for the
population, of the decentralization and individualization
of
policies (a change from intermediary approaches to an
abstract "soviet people" toward the working out
of a policy
regarding the relationship toward concrete social strata
and
groups among the population. That is one additional aspect
of the government's social policy in the transition stage
which is atypical of former policies; the question of the
limits to the functions of central and local organs of
power, and the creation of regional social policies. That
the actions of the central administration in those areas
can
provoke the appearance of another confrontation in, among
others, the political sphere, is not exceptional. In any
case the tactic of throwing social problems at the regional
level without administrative agreement regarding the limits
to functions and corresponding sources of their financing
has already heightened the contradiction between regions
and
the center.
In this manner, one of the most important
conditions for the establishment of new social policies
is its isolation from the sphere of political feuding, and
the determination of its subjects and objects with reference
to concrete government establishments.
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