Development of the family according to the system of public administration. State family policy in Russia and abroad
INTRODUCTION
In human society, the family is a natural primary cell, the most important social value, a fundamental institution.
The family is a kind of system for supporting the rights of each of its members. To perform these functions, family and family ties and the interaction of family groups are of great importance. The family provides its members with economic, social and physical security; caring for the young, the elderly and the sick; conditions for the socialization of children and youth.
At present, the social protection of the family, in contrast to the previous system social security, is a multifaceted activity, differentiated in relation to different groups of the population and structured according to different ministries and departments, public organizations and institutions. New socio-economic conditions dictated by the transition to market economy, predetermine the transformation of the content, methods and forms of social protection of the population.
The social protection of the family and children today has acquired particular relevance in connection with the dynamic processes taking place in society and associated with its stratification and changes in the status of previously established social categories of the population. This is manifested in a significant impoverishment of families with children, a decrease in the level of health, an increase in morbidity and mortality of the population, growing depopulation trends, degradation phenomena and negative changes in the nation's gene pool.
Today, families with children, as a rule, are at the lowest level in terms of real incomes, belong to the poor strata of society.
An analysis of the system of benefits, benefits and compensation payments to the family allows us to state that their role in the level of material well-being, the level of social and economic efficiency of family protection is small. The standard of living of low-income families with children does not undergo qualitative changes, despite the fact that child benefits make up a significant share in the incomes of these families. Especially in high-income groups of families, these allowances and benefits do not play any role in determining their standard of living.
This confirms the thesis that in the conditions of life that have developed in the transitional period, the problem of social protection of families is of fundamental importance. At the same time, its implementation at the stage of formation of a market economy requires a qualitatively new approach.
Forms of social assistance, in addition to the traditional ones, are conditioned by maintaining the necessary level of provision of families with vital food, clothing, footwear, necessary services: including the missing funds for the purchase of housing, education, children's recreation, sports, and health. The role of these forms of social assistance to families with children will increase as the market economy develops in the country, the housing market, insurance medicine and paid health services develop, as well as the commercialization of education.
Today, the family, more than ever, needs social assistance and state protection - not one-time, but permanent, guaranteed, targeted. An important role in this is played by the implementation of state family policy, including the system of organizing territorial services and, above all, centers for helping families and children, which in general constitutes social services for the family.
Therefore, the object of study of the thesis is the modern family, and the most pressing problems of the full and incomplete family are highlighted and investigated in the work.
The subject of the analysis of the thesis is the analysis of the social protection of the family.
Social service is a concept in our life that has recently come into use. At first glance, one can imagine that such service consists in the provision of in-kind and material assistance. However, by this we mean everyday social work with the family, which includes all aspects of social support, rehabilitation, adaptation, protection, as well as the activation of the potential of its own ability to survive in a destabilized society.
The aim of the work is to systematize information about the problems of the modern family and determine ways to solve these problems by optimizing social services, as well as developing recommendations for social services to enhance the economic and household functions of the family.
Thesis tasks:
Study of family problems;
Analysis of the current state of social protection of the family;
Study of the legal framework for the social protection of the family;
Reviewing the implementation of family policy;
study of practical social work with a family with children.
Consideration of these topics will help to show that the causes of negative phenomena are associated not only with the difficulties of transition to a market economy, but in many respects they come from a simplified understanding of social security as a guaranteed minimum of material prosperity. In this regard, it is necessary to effectively educate the population about the social services provided.
of all documents containing the main provisions of the state social policy. They have found their consolidation in laws, acts of a regulatory nature. Laws in the field of state family policy were published in official publications - "Collection of Legislation Russian Federation", collections of resolutions of the Ministry of Social Protection of the Russian Federation, the Ministries of Labor and Social Development of the Russian Federation, Pravda, as well as in departmental collections and other publications. Analyzing the state family policy, the author used as a source documents of the President of the Russian Federation in the form of decrees and orders, orders and orders of the Government Russian Federation, regulatory documents of the Administration of the Krasnodar Territory The study of these documents made it possible to clarify the effectiveness of measures to mitigate social tension in society.
CHAPTER I SOCIO-ECONOMIC SITUATION OF THE FAMILY IN MODERN RUSSIA
The situation of the family and children in the Russian Federation in modern conditions can be characterized as a crisis. With the transition to market relations, the standard of living of the population of Russia has significantly decreased. The financial situation of families with many children, single mothers, families with disabled children, and student families has especially worsened. Almost all of the money incomes of these families are used to buy food and food.
However, the most important and, perhaps, one of the few positive results of the turbulent changes taking place in Russia today is the return to man of truly human values. "Everything returns to normal" - this biblical wisdom was destined to be confirmed once again in our country.
Entering the main road of human civilization, we must once and for all abandon the grandiose plans for building castles in the air and start small, i.e. revival of the fundamental principle human society- families.
This truth has long been comprehended by the entire civilized world. It is understood by ordinary people in our country, exhausted by social experiments.
The socio-economic and political transformation of the Russian state and society that has taken place in recent years has led to a radical breakdown of economic and social structures. Under these conditions, the study of well-being and the preservation of the health of such an important primary basic institution of society as the family are of particular importance.
The United Nations declared 1994 the International Year of the Family. The goals of the Year of the Family proclaimed by the world community: raising the awareness of authorities and administration, parties, social movements and every family about family problems and strengthening national and regional mechanisms for the development and implementation of family policy programs - fully meet the needs and requirements of Russian families.
It is the family and its interests that should be at the center of social policy. This approach is the key to mitigating the negative effects of reforming society. The family can and should turn from a hostage of reforms into their driving force.
In order to solve this problem, it is necessary to consider the most acute problems of the state and society from the standpoint of the interests of Russian families: fathers and mothers, grandfathers and grandmothers, children and adolescents.
The report of the National Council for the preparation and holding of the International Year of the Family in the Russian Federation "On the situation of families in the Russian Federation" examines the demographic and social characteristics of families, their economic situation, as well as the state and prospects for the development of state family policy.
According to the author, the following most important questions deserve deep attention and study:
Ideology of the state family policy;
The current situation of Russian families, their most acute problems;
Ways to solve the problems of Russian families.
The ideology of family policy, representing a system of views and ideas, determines not only the criteria for assessing the changes taking place in the institution of the family, but also the ways of implementing family policy.
The National Council for the preparation and holding of the International Year of the Family in the Russian Federation shares the ideology and strategy of family policy developed by the United Nations and enshrined in its resolutions dedicated to the Year of the Family and other materials, and evaluates the UN concept as adequate to the global consensus of views on the family.
The main principles of family policy proclaimed by the UN are as follows: The family, as the most important cell of society, deserves attention, protection and support from the state, regardless of family types, diversity of individual preferences and social conditions. All families have the right to count on state support.
It is necessary to promote the rights and freedoms of the individual in the family.
Family policy should be aimed at promoting equality between men and women in the distribution of family responsibilities and securing their equal opportunities to participate in work and social life.
All family policy measures should strengthen the autonomy and independence of families, providing assistance to the family in the performance of its inherent functions, without replacing them with state structures.
The world community has also formulated the priority tasks of family policy for all states:
Formation of egalitarian (equal) relations between spouses in the family.
Improving the situation of single-parent families with one breadwinner, with sick and elderly family members.
Protecting families from poverty and deprivation, from negative influences
actions of change that are associated with the economy, migration, urbanization, ecology, and as a result of which the family often loses the ability to perform its functions.
Creating conditions that allow families to make informed decisions on determining the intervals between births of children and their number.
Prevention of alcoholism and drug addiction, domestic violence.
Obviously, all these tasks are equally relevant for Russia and are formulated in our concept of state family policy, which, on the eve of the Year of the Family, was proposed to all regions for guidance and further development of their measures and activities.
The next cardinal issue is the current state of Russian families.
What are the problems that the family faces as a result of social and economic changes?
it is an increase in the number of low-income strata of the population;
increased social and geographic mobility; migration, including outside the state;
the deteriorating state of health, the demographic situation (a natural decline in the population began);
fundamental changes in the traditional roles of family members, especially women;
growth in the number of incomplete families;
increasing the dependency ratio;
domestic violence, social orphanhood.
In the structure of economic problems, the most acute is the sharp drop in the real incomes of most families in Russia.
For the vast majority of families with children, wages are the main source of income. With its increase (in monetary terms) from 1990 to 1994 by 194 times and consumer prices increased by 297 times, the level of real wages, i.e. its real purchasing power decreased by 1.9 times.
The money savings of families have depreciated to zero.
The minimum wage provides only a fifth of the minimum consumer budget. Unbiased statistics state that families with underage children are the least well-to-do part of the Russian population. Their incomes are lower than those of other families.
Child benefits are indexed to a lesser extent than pensions and stipends, and decline in real terms from one indexation to the next.
The sectors of the social sphere are constantly reducing the volume of services provided to families, which are becoming less and less accessible due to their payment and rising prices.
It is obvious that the slow, inconsistent building of the statehood of Russia, serious mistakes in reforming the socio-economic life, have damaged such social values as an extensive free system of pre-school and out-of-school education, and recreation for children. This system allowed parents to combine family responsibilities with participation in the structures of the labor market, introduced young people to various types of creativity, and helped them in choosing a life path.
Today, under the slogan of the transition to the market, the destruction of the unique systems of the social infrastructure of childhood continues, primarily as a result of a decrease in the possibilities of financing them. Commercialization makes these institutions inaccessible to most children, some of them, unable to cope with financial difficulties, are closed. Others are reformed, becoming elite. The highly qualified personnel potential, which has been formed over decades, is being lost. Ultimately, children who are deprived of the opportunity to develop, relax, and engage in educational circles and associations suffer. Once on the street, they join the detachments of homeless people, drug addicts, and juvenile delinquents.
Fewer children are attending preschools year after year due to increased parental fees and a reduction in the number of places. At the beginning of 1994, fees for staying in them increased 518 times compared to 1990. For the same reason, the number of children involved in paid sports sections and art studios is decreasing.
For most families, health care services, including qualified medical care, medicines and medicines, have become less accessible.
More and more families cannot afford to use cultural and recreational facilities, organize family summer vacations, send their children to recreational country camps. Reduced visits to theaters, cinemas, concerts, museums, libraries.
An insoluble problem for most families is the improvement of living conditions. It is especially acute for young families who do not have their own housing.
An extremely alarming situation is developing in the demographic situation. Economic and social trouble manifests itself in a reduction in the average life expectancy of the population. In 1993 alone, it decreased by 3 years for men (59 years) and by 1.1 years for women (72.7 years). Such a decrease in life expectancy is comparable only to wartime and is unprecedented for civilian life.
| years | born | Deceased | Natural growth |
| 16,0 | 10,7 | 5,3 | |
| 9,4 | 14,5 | -5,1 | |
| 8,8 | 13,9 | -5,6 |
The birth rate is declining, people's health is deteriorating, mortality is increasing, especially from accidents, injuries, poisoning, murders and suicides. In 1992, the mortality of the population of Russia from unnatural causes exceeded the average European level for men by 4 times, and for women - by 2 times. The excess of the average European level of mortality from murders is especially large: 20.5 times for men and 12 times for women.
High mortality from unnatural causes is caused by the aggravation of social tension, the growth of crime, interethnic conflicts, as well as the depreciation of production assets, the fall in labor discipline, the deterioration of food quality, environmental and technological disasters.
As a result of premature mortality, the number of widows, widowers and orphans is increasing in the country.
If until 1991 infant mortality in Russia was gradually decreasing, then since 1993 it began to grow and to
the end of the year was 20 deaths per 1000 births.
Since 1992, the depopulation of the Russian population began due to the excess of the number of deaths over the number of births. In 1995, according to official data, the natural decline in the population of the country amounted to 785.4 thousand people and increased by 3.6 times compared to 1992. This result is the result, first of all, of negative socio-economic factors.
There is a growing number of refugee and internally displaced families experiencing severe suffering.
Surveys of specialists show that the refusal of some families to have children due to unfavorable economic and psychological conditions can, with the continuation of the socio-economic crisis, develop into new reproductive attitudes, expressed, in particular, in a sharp decrease in the values of children for parents, which will further lead to a new round of depopulation - for example, a reduction in the population and labor resources, as well as neglect and neglect of children.
The psychological climate in society is deteriorating, which is directly related to the growth of violence, crime, the spread of alcoholism and drug addiction, prostitution and
pornography. And the family, being a part of society, ceases to be a psychological refuge from social cataclysms. As a result, the number of dysfunctional families is increasing.
But, despite the severity of the most acute problems, the family has so far withstood economic hardships and political storms.
According to sociological surveys conducted in the spring of 1993 by the Center for Universal Values in conjunction with the Ogonyok magazine, to the question: "What is most important to you in life?" - almost 53% of respondents answered: "Family". And the point is not only and not so much that people understand, so to speak, the philosophical or social significance of this institution. In their opinion, the family is a salvation from loneliness, from what the great Pushkin called "the fruits of heart emptiness", it is a home that gives a person peace, joy and peace, these are our children, our heirs, in whom we put our whole soul Finally, the family is a kind of psychological support, without which it is difficult to do in our troubled times.
The attitude of Russian families to such an aspect of family relations as the distribution of family responsibilities between spouses is interesting. the degree of advancement of Russian families in the direction of egalitarian, equal relations.
In recent years, there has been a noticeable evolution of those norms that have traditionally been associated with the qualities of the "ideal" husband and "ideal" wife. The specificity of the requirements now placed on a spouse is determined by the clash of two opposing approaches: the deep penetration into the minds of people of the ideas of equality of men and women in the family and society, on the one hand, and the pressure of traditional stereotypes of the husband-breadwinner and wife, the keeper of the hearth, on the other.
The Russian family is on the path of transition from an authoritarian way of life to a more democratic one. It is based on the almost universal involvement of women in the sphere of social labor, the growing material independence of wives from their husbands.
In general, today's stereotypes of husband and wife are inconsistent and contradictory, representing a conglomeration of traditional and egalitarian views. It can be assumed that in the system of people's ideas about marriage and the family, this complex is among the conservative, least flexible, and difficult to change. Nevertheless, shifts in the direction of egalitarianization of the requirements for each of the spouses are evident.
In the psychological state of Russian families, unfortunately, uncertainty about the future and poor protection from violence and the criminal world prevail.
This is the current state of the Russian families in terms of economics, demography and sociology. What needs to be done to move from stating the problems of Russian families to solving them?
Undoubtedly, without overcoming the socio-economic crisis and further economic recovery, stabilization of the socio-political situation, the solution of a significant part of the problems of families is impossible.
At the same time, the mitigation of the negative consequences of reforming society is quite possible. The way out is seen not in the rejection of reforms, but in giving them a social orientation.
It is necessary to consider the interests of the family as the goal of economic and social development.
In the economy, this means: firstly, the predominant development of industries that ensure the satisfaction of the material needs of families (agriculture, light and food industries, consumer services); secondly, ensuring the preservation of social guarantees in labor, regardless of the form of ownership (labor protection, labor benefits for pregnant women and mothers with children, working fathers, etc.).
In the social sphere, it is important to focus on the family, which will ensure an integrated, comprehensive approach to social policy.
When planning changes in the social sphere, including health, education, social security, employment policy, agrarian, housing policy, all measures should be developed, evaluated and implemented in terms of ensuring their positive impact on the family.
It is necessary to ensure qualified expertise of all bills in terms of their consequences for the life of the family.
The state should not impose on the family a way of life, the number of children, the employment of parents. The family is autonomous in making all decisions, its right is to choose support measures.
Before the state, all families are equal: young and old, complete and incomplete - and have the right to support.
The state must assume obligations to unconditionally protect the family from poverty and deprivation associated with forced migration, military conflicts, natural and technological disasters.
The social market state should implement social protection of the family in a differentiated way, ensuring a socially acceptable standard of living for disabled family members: children, the disabled, pensioners, and families with many children.
Single-parent families with one breadwinner require special attention: single mothers, divorced men and women with children, widows and widowers with children, as well as guardian families.
At the same time, it is necessary to create conditions in society for the self-sufficiency of families with able-bodied members on a labor basis. We need a new income policy. Wages and pensions should, in particular, provide for all the needs of the family in terms of paid social services (health care, consumer services, etc.).
It is important to provide conditions for the partnership of the state, sharing responsibility for the fate of Russian families with all civil institutions and all citizens on the basis of cooperation.
A lot could be done and is being done for families now, even in times of social and economic crisis.
First of all, this is the formation of national mechanisms for the development and implementation of state family policy.
Federal and regional structures of power and management in the field of family policy have been created. The main links of this management system include the Committee on Women, Family and Youth Affairs of the State Duma, the Commission on Women, Family and Demography under the President of the Russian Federation, the Department of Family, Women and Children's Problems of the Ministry of Social Protection of the Population of the Russian Federation, as well as structural subdivisions of federal ministries and departments of social orientation dealing with issues of education, upbringing, health care, recreation, culture, physical culture, consumer services and ensuring that the family performs its reproductive, educational, life-saving and other important functions.
Scientists and public organizations are widely involved in the development of the state ideology of family policy, which undoubtedly enriches the content and practice of management activities at different levels.
The subjects of the federation are the driving force in the implementation of family policy. Departments, commissions or committees have been formed in the administration and bodies of social protection of all territories of the Russian Federation, which are engaged in the development and implementation of special family policy programs.
In addition to the system of administrative structures dealing with the family, Russia has developed an extremely complex hierarchy of bodies that focus on issues of youth, gender, and children's policy. All of them are interconnected and often duplicate each other in many areas of their activity.
Improving management structures, as well as mechanisms for financing the legal, information support of family policy, are big and important issues that require professional discussion and constructive solutions in the near future.
Nevertheless, the formation of national mechanisms for managing family policy is not a goal, but only an in-
tool, a means of solving family problems.
At present, the main method of solving family problems is the development and implementation of federal and regional programs.
According to the priorities of family policy - and the problem of survival, protection and development of children in accordance with the ideology and fundamental documents of the UN is priority No. 1, the federal program "Children of Russia" is being implemented in Russia. It includes subprograms "Children's food", "Orphans", "Disabled children", "Children of the North", "Family planning", "Children of Chernobyl". The implementation of these programs is under the control of the Commission on Women, Family and Demography under the President of the Russian Federation.
It is quite obvious that the future of Russia depends on the measure, depth and consistency of solving the problems of childhood.
And there are a lot of these problems in Russia. The quality of nutrition for children has deteriorated, and the problems of providing them with clothing and public medical care have become more acute. The number of disabled children and orphans, whose socio-economic situation is particularly difficult, is growing every year. The number of children living in incomplete families is constantly increasing. The number of illegitimate children is growing.
In recent years, the number of children with congenital developmental anomalies and hereditary diseases has increased significantly.
Children with deviant behavior cause anxiety. The number of minors registered with the internal affairs bodies in connection with the commission of offenses is growing.
At the same time, there is no clear system for identifying and registering children with developmental disabilities, services that provide prevention of disability from childhood are poorly developed, and there is no comprehensive system of medical, social, psychological and pedagogical rehabilitation of children with developmental disabilities.
Despite the efforts made in understanding the problems of childhood, the need to solve them on the basis of the Convention on the Rights of the Child, confirmed by the Decree of the President of the Russian Federation (“On Priority Measures for the Implementation of the World Declaration on Ensuring the Survival, Protection and Development of Children in the 90s”), the provision children are justifiably worried.
Experience shows that the solution of childhood problems is possible only on a program-targeted basis.
In recent years, a number of state measures have been taken aimed at providing minimum social guarantees to children, primarily in the field of improving nutrition, protecting health, maintaining access to education, pre-school and out-of-school education, and preventing neglect and crime. Particular attention is paid to orphans, disabled children, children from large families, and juvenile delinquents. These measures play a positive role, but, unfortunately, their positive impact is neutralized by the rapid deterioration of the quality of life and the disorganization of the social infrastructure of childhood.
An important role in solving family problems should be played by the federal programs "Women of Russia", "Health", "Vaccinal Prevention" and other social programs.
Holding the International Year of the Family in Russia provides an opportunity to intensify family policy at the regional and local levels, as has been repeatedly recommended in UN resolutions on the Year of the Family.
In almost all regions of Russia, commissions and committees have been formed to conduct the Year of the Family, which have specific plans for legislative, cultural, and scientific events.
During the period of severe economic crisis that our country is experiencing today, special attention is paid to programs addressed directly to children. For example, in the Krasnodar Territory, a regional project "Opportunities" has been developed - an action plan to create conditions for the social rehabilitation of children with disabilities.
In the process of developing the project, the main activities were aimed at providing information and methodological support for the social support of families with disabled children:
A package of methodological and reference materials has been prepared;
A diagnostic study of the activities of specialists from centers, departments for the rehabilitation of children with disabilities was carried out (Krymsk, Kropotkin, Novorossiysk, Krasnodar, Kurganinsky, Tbilisi districts);
Regular consultations were held for specialists of institutions serving this category of the population;
It was practiced to conduct internships for specialists on the basis of institutions of other departments (education, healthcare);
An information booklet "Opportunities" was prepared;
The basic requirements for the volume and quality of social services, the procedure and conditions for their provision on the basis of rehabilitation institutions for children with disabilities are being worked out.
The need to develop this project in the region is due to the growing number of disabled children, the presence of rehabilitation institutions of various departments, the creation of a state service for medical and social expertise in the system of social protection of the population, and the approval of an individual program for the rehabilitation of a disabled person.
Many territories carry out a wide range of measures for the medical and social rehabilitation of disabled children, including through the development of special programs.
The reality and effectiveness of the adopted and developed programs is largely determined by the system of their financing. It should be borne in mind that the difficult economic situation in the country limits the ability of the regions to solve childhood problems, which makes it necessary to support the main, most vital activities of regional programs from federal sources.
Increasing attention is paid to the organization of family planning centers in the regions.
A new direction in family policy is social services for families, which have been developed literally in recent years. Today in Russia there are about 500 institutions of social service for families, opened mainly in republican, regional and regional centers.
In many territories, preference is given to multidisciplinary territorial centers for social assistance to families and children. In a number of places, special shelters for children and adolescents, rehabilitation centers for children with disabilities are being opened.
There are many problems, mistakes, unresolved issues in this new business. But it is extremely important, as it helps to organize assistance to families at a professional level.
The staffing of the system of social services for families and childhood is the most urgent task of modern Russia. The scale and quality of training of social workers, practical psychologists and other specialists today do not meet the needs of the emerging system of social services. Many social services that provide assistance to the population, as well as government bodies, are largely understaffed by professionals. According to calculations, the existing need for personnel of social workers in the social service system is approximately 150-200 thousand people, including 30-50 thousand highly qualified specialists.
Currently, social work specialists are trained in more than 30 higher educational institutions of the Russian Federation. The main source of funding is the federal budget, and in a number of regions, the local budget, including funds from enterprises and organizations. Only in some regions the training of specialists of this profile is carried out at the expense of the local budget. It is quite obvious that in the event of the termination of centralized funding, stationary training and retraining of such social work specialists will be terminated. Preliminary calculations showed that 74 million rubles are required for the training and retraining of such specialists. Refusal of financing will cost significantly more for the whole society and the system of social protection of the population.
The current situation calls for the creation of an integral system of multi-level fundamental training of social workers, the social and legal foundations of the status of a social worker.
Family policy is not only difficult everyday life, but also family holidays. The great need of families for unity, the craving for communication could be seen on May 15, 1994, when in Moscow and in many regions of Russia for the first time International Day of the Family was held at the initiative of the UN.
The Russian family has a lot of problems, and those state structures and non-governmental organizations that seek to help it have a lot of worries. The mobilization of all Russians, all social forces to solve the problems of survival and development of the family in Russia can help solve problems.
CHAPTER II IMPROVEMENT AND DEVELOPMENT OF THE NORMATIVE AND LEGAL BASIS OF THE STATE FAMILY POLICY
In the 90s. certain positive trends are being formed in the activities of the state in relation to the family. The society is aware of the need for global solutions to strengthen the family, the implementation of radical family policy measures. The attention of the regions to the problems of the family has increased, which is reflected in the formation of territorial authorities directly dealing with its problems, the implementation of targeted programs to support the family, the analysis of its situation, and the development of social services. A certain potential of non-state subjects of family policy is emerging in the country, including various public, religious, commercial organizations, political parties and movements. The process of formation of public organizations, associations, whose activities reflect the interests of the family, began. For example, there are such organizations created in recent years as the Russian Association "Family Planning", the Union of Soldiers' Mothers, the Union of Mothers of Large Children, the Fund for Assistance to Disabled Children. Objectively, the role of science in the study of the life of the family, the identification of general patterns and features of its functioning and development, is increasing. The Research Institute of the Family, established by the Government of Russia in 1991, actively promotes the integration of ongoing family studies based on an interdisciplinary approach.
Attention was increased to the problems of the family and family policy in the process of preparing and holding the International Year of the Family (1994). The National Council, together with ministries and departments, non-governmental organizations, carried out a set of organizational, informational, scientific, and other measures aimed at solving family problems, strengthening family values and family lifestyle, and intensifying specific work to support families in the regions.
The tendency to increase the responsibility of the state for the family is reflected in the legislation of the country. Thus, the Family Code of the Russian Federation, adopted in 1995, regulates the sphere of marriage family relations and establishes the conditions and procedure for entering into a marriage, terminating a marriage and recognizing it as invalid, determines the personal non-property and property relations of family members.
Accepted by the state The measures were intended to legislate the basic social guarantees for persons with minor children, workers with family responsibilities (child allowances, tax, pension and other benefits). The labor legislation provides guarantees for pregnant women and women with children related to their employment and dismissal, improvement of working conditions. Some of these benefits were extended to single men raising children. Both parents with minor children have their taxable total income reduced by an amount equal to two minimum wages per child. In accordance with the pension legislation, women who gave birth to five or more children and raised them up to 8 years old, as well as disabled mothers from childhood, received the right to an old-age pension upon reaching 50 years of age and with a total length of service of at least 15 years.
A fundamental shift is the consideration of the family in some state documents as a subject of law. In particular, in 1995 such a status was given to the families of forced migrants (Decree of the Government of the Russian Federation of December 26, 1995 No. 1278). In 1996, families resettling in the countryside, as well as farming families, received legal status (Decree of the Government of the Russian Federation of February 7, 1996 No. 135). This trend can also be seen in housing legislation. According to the Federal Law “On Amendments and Additions to the Law of the Russian Federation “On the Fundamentals of Federal Housing Policy” (No. 9-FZ dated January 12, 1996), the amount of housing costs is related to the total family income per person, and compensation (subsidies) are provided if the income does not exceed the established subsistence level. In addition, the Law of the Russian Federation "On Education" (as amended by Federal Law No. 12-FZ of January 13, 1996) recognizes "family education as one of the forms of the" education system ". In Article 52 "Rights and Duties of Parents", this provision is again confirmed: parents "have the right to give their child primary general, basic general, secondary (complete) general education in the family."
Issues of state family policy are also reflected in the normative documents regulating social policy in relation to children and women. In these areas of social policy, packages of regulatory documents have been adopted, a number of measures provided for in them are addressed to the family and can be attributed to the competence of family policy. In this regard, it is necessary to single out such documents that determine the policy regarding children, such as the Federal Law of May 19, 1995 No. 81-FZ “On State Benefits for Citizens with Children”, Decree of the President of the Russian Federation of September 14, 1995 No. 942 “ On the main directions of the state social policy to improve the situation of children in the Russian Federation until the year 2000 (National Plan of Action for the Interests of Children)”, Decree of the Government of the Russian Federation of January 13, 1996 No. 28 “On the Plan of Action to Improve the Condition of Children in the Russian Federation for 1995-1997”, a number of decrees of the President of the Russian Federation on the issues of the presidential federal target program “Children of Russia”, in particular, Decree of the President of the Russian Federation “On the extension of the presidential program “Children of Russia” dated February 19, 1996 No. 210.
The problem of the double workload of a working mother was reflected in the Decree of the President of the Russian Federation of June 18, 1996 No. 932 “On the National Plan of Action to Improve the Status of Women and Enhance Her Role in Society until the Year 2000”. The detailed action plan approved by the government in accordance with the decree provides, in particular, for solving the social problems of women related to the combination of professional and family responsibilities.
The Law of the Russian Federation “On Employment in the Russian Federation” (as amended by Federal Law No. 36-FZ of April 20, 1996) reflects the specifics of the socio-economic situation of a number of categories of families. In Article 5 "State policy in the field of promoting employment of the population" as objects of state policy in the field of promoting employment of the population in need of social protection and experiencing difficulties in finding work, the following are distinguished: disabled people; citizens who have persons who, according to the conclusion of an authorized body, need constant care, assistance or supervision; persons released from places of deprivation of liberty; young people under the age of 18 looking for a job for the first time; persons of pre-retirement age (two years before the age giving the right to retire for old age (by age); refugees and forced migrants; citizens discharged from military service and members of their families; single and large parents raising minor children, children - disabled people; families in which both parents are recognized as unemployed; citizens exposed to radiation due to Chernobyl and other radiation accidents and disasters.
At the same time, there is no unified legal framework for state family policy in the country; the measures taken by the state are mainly addressed to the individual and poorly take into account the interests of the family as a social institution. The legal status of the family, which characterizes its position in relation to the state and its institutions, has not yet been determined. Legislation regulates mainly the family rights of citizens. This largely determines the state of the state family policy. According to the National Council for the preparation and holding of the International Year of the Family, the system of family policy in our country is only being formed. Experts of the international organization TAS18, who have specifically studied this problem, believe that Russia does not yet have a pronounced family policy, but it is already under development.
The formation of the ideology of state policy regarding the family is an ambiguous and controversial process, the main milestones of which were the Concept of Family Policy of the Committee on Family Affairs, Family and Demographic Policy (1991), the Concept of State Family Policy of the National Council for the preparation and holding of the International Year of the Family (1993) and the Main Directions of the State Family Policy (1996), approved by Decree of the President of the Russian Federation of May 14, 1996 No. 712. These documents reflect the ideology of universal human values, the priority of the interests of the family and the individual, and create conditions for reaching a new level of interaction between the state and the family. However, the existing prerequisites were not effectively used to form family policy as a direction of social policy, a system of state activity, and the development of its methodological, programmatic, organizational and managerial foundations.
An important stage in the development of the official paradigm of state family policy was the above-mentioned Decree of the President of the Russian Federation "On the Main Directions of State Family Policy" (dated May 14, 1996 No. 712). Let us emphasize the continuity of the adopted document with the Concept of State Family Policy, approved by the National Council for the preparation and holding of the International Year of the Family. The main directions of the state family policy reflect many acute problems of family life. For the first time at the state level, family policy received a state definition. It is considered as an integral part of social policy, a system of principles, assessments and measures aimed at "ensuring necessary conditions for the implementation by the family of its functions and improving the quality of life of the family” (Article 8). Its functions are not systematically included in the activities of public authorities. This largely reflects the point of view, widespread in official circles, that it is not advisable to conduct a special family policy, since all social policy is family-oriented. The term “family policy” itself is practically not used in state documents. In the current work of ministries and departments, family policy, as a rule, is understood as a set of general social measures that affect the life of the family, women, and children. As a result, the subject of family policy is expanding so much that it loses its boundaries and the specifics of an independent direction of activity, and is identified with the subject of social policy.
The family does not act as an independent object of state policy and programs adopted at various levels of government. Many ministries and departments do not perform the functions of subjects of family policy, do not carry out systematic work in this area, do not develop appropriate programs, limiting themselves to individual events. A unified system of state expertise has not been created to ensure the adjustment of social policy and its individual areas, taking into account the interests of the institution of the family. The interests of the family are deliberately not taken into account when solving many problems that have arisen during the transition period (privatization, taxation, lending, etc.). In the new conditions, the experience of family support accumulated in past years is not rethought. There is no medium-term program of state family policy. Measures taken in social practice, as a rule, are of a short-term nature; professionally trained personnel. It should be noted that policies regarding children and women are formed autonomously and are more developed than family policy.
The family is extremely insufficiently involved in the processes of development and implementation of state policy, and is not a full-fledged subject of the reforms being carried out in the country. This issue has not been worked out conceptually, state mechanisms have not been formed to ensure the participation of the family in socio-political activities, the development of organizations and associations that lobby for its “corporate” interests. The existing potential of non-governmental organizations is not systematically involved in the implementation of the goals of family policy, there is no concept of their relations with state institutions, and there is no proper coordination of efforts. Therefore, it is necessary to take measures to activate all participants in the process of developing and implementing family policy.
In the federal budget of the country, funds for financing family policy are not allocated as a separate line, only certain measures in this area are financed (social protection, social services for families, child benefits). According to the conclusion of a number of ministries and departments (the Ministry of Finance, the Ministry of Education, the Ministry of Health and Medical Industry, etc.), the state family policy, in essence, the problems it solves, is complex, intersectoral in nature and affects a wide range of issues that lie in related areas of social policy. It is not possible to allocate in the federal budget a separate line of appropriations for its financing, because the costs of implementing specific measures are provided for in the relevant articles of the federal budget related to education, culture, art, health care, and social protection. The given arguments are not convincing and testify, at least, to the methodological misconceptions of the employees of these departments. So, they unlawfully expand the subject of family policy, it includes the whole set of problems of women and children. In addition, youth policy, for which funds are allocated in the budget as a separate line, is also of a complex, intersectoral nature. At present, family policy in Russia is deformed. In conditions when a significant part of families have incomes below the subsistence level, social protection of vulnerable categories of the population has become a priority policy goal. At the federal level, efforts are focused on material support (primarily family benefits) and social services for families. As for many other aspects of family policy, they are underdeveloped.
Thus, in general, state measures of economic support for families are not effective enough and are mainly limited to cash benefits for children. At the same time, a strategy has not been worked out for developing the economic potential and initiative of families, ensuring their economic security and guarantees of social protection, creating an adequate system of support for them during the transition period, focused on mutual (rather than one-sided) adaptation of the family and the economy. The Brief Review of Family Policy and the International Year of the Family in the Russian Federation, presented to the 49th session of the UN General Assembly, emphasizes the need to increase the internal resources of the family for self-sufficiency, maintaining the health and personal development of their members, caring for the disabled, their rehabilitation and adaptation in society, opposition to antisocial behavior, alcoholism of family members.
It is obvious that today at the federal level there are no resources for further increasing benefits. Therefore, it is advisable to move to the individualization of family social support at the territorial level, and an increase in the effectiveness of such support can provide an integrated approach to family problems to eliminate, first of all, the causes of trouble, and not just the consequences. It is necessary to shift the emphasis in the structure of types of assistance, priority should be given to active forms of support (additional training, retraining, employment, lending for self-employment, etc.).
CHAPTER III SOCIAL SERVICES OF THE FAMILY AND CHILDREN AND THEIR DEVELOPMENT
The specifics of the implementation of radical economic reforms in Russia, accompanied by a radical breakdown of the social infrastructure, has led to a significant deterioration in the situation of the family and children, serious deformations in their life. The number of low-income families, families with disturbing negative disturbances in interpersonal relations, families with a negative psychological climate and an unfavorable emotional atmosphere has sharply increased. The cases of child abuse, alienation between children and parents, and the breaking of ties between them that have become very common have had an extremely negative impact on the social well-being of millions of children, their moral, mental and physical health.
Under these conditions, the formation of a system of social services for the population, especially families and children, has become an objective necessity. A serious impetus for its progressive development was the adoption of the Federal Law "On the Fundamentals of Social Services for the Population in the Russian Federation", which establishes the foundations
legal regulation in the field of social services, in particular, the right of all citizens to social services in the state system of social services for the main types of assistance: (material assistance, social services at home, social services in stationary, semi-residential and non-stationary institutions, advisory assistance, rehabilitation services , urgent social assistance services), which are provided for by this law.
Of particular importance for the family and children is Art. 17 of the Federal Law, in which among the social service institutions, regardless of the form of ownership, institutions are named that directly provide these categories of the population with social services - comprehensive centers for social services for the population, territorial centers for social assistance to families and children, social service centers, social rehabilitation centers for minors , centers for helping children left without parental care, social shelters for children and adolescents, centers for psychological and pedagogical assistance, stationary institutions for children with disabilities, centers for social mutual assistance and self-help.
The federal law establishes the powers of both federal state authorities and state authorities of the constituent entities of the Russian Federation in the field of social services, which allows further development of social service policies at all levels of government. In particular, this approach enhances the role and responsibility of the constituent entities of the Russian Federation in making appropriate decisions and creating a regional mechanism for their implementation in the interests of the family and children.
At the same time, the Federal Law obliges the Government of the Russian Federation and the relevant federal ministries to develop and introduce state standards of social services and a procedure for licensing in the field of social services, which will certainly make it possible to determine the basic requirements for the volume and quality of social services, to organize social services for families and children at a sufficient level. quality level and have reasonable criteria for assessing the professional and ethical activities of social workers.
In 1995, work continued in Russia on the development of territorial social services in various regions. On the basis of statistical data received from the constituent entities of the Russian Federation, positive trends can be noted in the formation and development of social service institutions for the family, youth and children.
The dynamics of the main statistical indicators characterizing the formation and development of social service institutions for families and children indicates that the number of social service institutions for families and children in the system of social protection of the population has increased 4 times over the past few years.
As of January 1, 1997, 1,788 institutions of social services for families and children operated under the jurisdiction of social protection agencies. In 1996, their number increased by 367 units or 25%. There has been a significant increase in the number of such types of institutions as social rehabilitation centers for minors (from 116 to 154), centers for social assistance to families and children (from 169 to 186), centers for psychological and pedagogical assistance (from 100 to 186). Social shelters for children and adolescents (from 311 to 391) and departments of social assistance to families and children in social service centers (from 310 to 401) developed at an accelerated pace.
Analyzing the distribution of institutions on a territorial-administrative basis, one cannot fail to note a clear trend in the development of institutions for social services for families and children at the district and city level, which is a positive factor, since it allows bringing social services closer to the consumer. At the same time, more and more institutions are being opened directly at the place of residence of the population - in microdistricts. From year to year, the number of clients who received assistance in institutions of social services for families and children is increasing. In 1996 alone, all types of institutions provided social services to 2.326 million people, of which 1.388 million were minors, and 885.5 thousand families.
Institutions of social service for youth have received a certain development. In 51 territories of the Russian Federation, there are more than 430 institutions providing social services to young people in more than 20 areas of activity - from organizing leisure activities and cultural and sports work to psychological and pedagogical counseling, "helplines", drug treatment, family planning.
The network of social service institutions for children in the education system of the Russian Federation was further developed. Information received from 79 territories of Russia indicates that the service of practical psychology in educational institutions has basically formed. In all regions, there is a trend towards an increase in the number of professional psychological personnel, but the availability of such specialists in various educational institutions is still insufficient.
Professional psychological assistance to educational institutions is gradually moving to a fundamentally new level. Psychological centers of various orientations are being created and developed: centers for psychological and pedagogical assistance, socio-psychological, psychological, medical and social, career guidance, social and leisure, rehabilitation and others, which in
they are mainly trying to solve two fundamental tasks: first, to provide qualified, multidisciplinary assistance to children, parents, teachers, administration, management of educational institutions; secondly, to provide professional support to psychologists working directly in basic educational institutions.
The service of practical psychology of the education system has proven its effectiveness in solving a wide range of problems: designing a developing lifestyle of an individual, drawing up a psychological portrait of an individual, providing psychological assistance to a family and a child, providing psychological support when choosing a professional career path, which is of no small importance in terms of population adaptation to new socio-economic conditions of life and educational space.
There are certain achievements in the services of practical psychology in the field of identifying the causes of deviations in the development of the child's personality, in the prevention and correction of such deviations. This work includes the main types of psychological activities - psychoprophylaxis, psychodiagnostics, development, correction and counseling. The system of social protection, assistance and rehabilitation of families and children has no less achievements.
Much more attention has been paid to working with families with disabled children.
At present, despite the difficulties and difficulties of the transition period, an extensive network of social service institutions of various profiles has been created, which, being subordinate to various departments, constitute territorial social services. But it is still premature to talk about the existing system of social services for families, youth and children, as well as about the availability of these institutions for every young person or child. In practice, there are about 2,000 state institutions for social services for families and children, which, of course, is very small for Russia.
The process of establishing a network of institutions of a new type that provide social services to families and children is highly controversial and ambiguous. An integrated approach to the formation and development of territorial social services for the problems of the family, youth and children is practically carried out only in one fourth of the territories of the Russian Federation. We can talk about significant progress in this area in relation to such subjects of the Russian Federation as the Krasnoyarsk and Krasnodar Territories, Moscow, Perm, Kursk and Tyumen Regions, Khanty-Mansi Autonomous Okrug, Pskov Region, Karelia, Bashkortostan, Kemerovo Region, Udmurtia, Arkhangelsk, Kaluga and Tula regions, St. Petersburg and Moscow.
Territorial bodies of social protection, education and committees on youth affairs are stepping up efforts to develop a system of social services for families and children, to prevent child neglect, develop and apply new social technologies for solving these problems.
An analysis of the activities of the executive authorities of the constituent entities of the Russian Federation and the social services of these territories shows that, as a rule, positive results in the field of social services for families and children are achieved in those territories where all government bodies of the social block (social protection of the population, education, health care, internal affairs, youth affairs, employment, migration, etc.). where the administration of the region carries out coordination activities (interdepartmental commissions, councils are created, programs are adopted, etc.), where the heads of administrations and their deputies personally direct the process of formation and development of social services.
Noteworthy is the experience of those regions (individual cities) in which the administrations of the territories, in order to form scientific, methodological and personnel support for the activities of institutions of social services for families, youth and children, the creation of new social technologies, combine the efforts of researchers and practitioners.
In the context of a shortage of financial resources in a number of regions of Russia, they are trying to influence the solution of the most complex problems of the family and childhood not by opening multidisciplinary family and children service centers, but by creating departments, small institutions, often low-capacity and monotonous in terms of types of social services. In a number of territories of the Russian Federation, only one-profile institutions of social service for children are mainly developing, for example, social shelters for children and adolescents. In some territories, no system is being thought out for creating institutions for children and adolescents, regardless of their gender, age, and place of residence. The activities of, for example, specialized institutions for girls often create difficulties in providing social services to other adolescents with problems in Everyday life.
In conclusion, the author notes that the formation of social service institutions for families and children, especially institutions of a new type for Russia, does not happen in everything as its ideologists and organizers at the federal level would like.
First, they cannot meet the pace of development of the institution's network. The centers of the emergency psychological help by phone slowly develop. An insignificant number of centers for helping children left without parental care have been created, crisis centers for women, for underage mothers, social services for neglected children are practically not being developed, the practice of adoption and guardianship is underdeveloped.
Secondly, there are complaints about the professional level of social work performed by employees of the institution of social services for families and children. Many do not operate at full capacity, not satisfying the essential needs and requests of customers.
The formation and development of the system of institutions for social assistance to families and children is associated with a number of objective and subjective factors, causes and difficulties.
The legal base of the system of social services still remains insufficiently developed. The state family policy is at the initial stage of formation, the Federal Law on social services for families and children has not been developed, state standards and procedures for licensing social services, etc. have not been approved.
The level of professional training of specialists working in institutions of social services for families and children does not satisfy. Statistics show that only a third of them have a special education or study. Many social workers have not been trained in refresher courses.
The status and prestige of social work in society, inadequate wages for social workers remain low.
The financial resources at the disposal of the executive authorities at the federal, regional and local levels are limited, and the financial resources, material, technical and intellectual capabilities of non-state institutions are also insufficiently used.
The quality of social services is affected by the weakness of the material and technical base of institutions. There are still extremely few specially designed complexes, buildings, and premises. Most of the centers are located in adapted premises. There is a shortage of rehabilitation equipment, means of communication, vehicles, computers, medicines, food, etc.
There are practically no methods of providing social services, modern technologies of social work with families and children have not been developed.
The activities of federal executive bodies, public organizations, foundations, and associations in the field of social services are poorly coordinated. The quality of work of institutions is affected by the lack of specialized literature on working with families and adolescents, the lack of advertising about the work of centers for social assistance to families and children in the media. Public opinion about the importance and necessity of social work in society has not been formed.
In order to accelerate the formation of a system of institutions for social services for families, children and youth, according to the author, it is necessary to take the following measures as a matter of priority.
At the federal level, it is advisable to accelerate the adoption of a set of resolutions of the Government of the Russian Federation aimed at implementing the Federal Law "On the Fundamentals of Social Services for the Population in the Russian Federation."
It is necessary to continue developing approximate regulations on the activities of institutions for social services for families and children (an integrated center for social services for the population; a crisis center for women; regional, city and district centers for social assistance to families and children); prepare proposals for the creation of an interdepartmental commission, including representatives of education, health, culture, social protection, youth, public, non-governmental funds and organizations dealing with family and children, whose main task would be to coordinate efforts and integrate financial and economic, material, scientific, methodological and other resources on the problems of social protection, support and assistance to families.
In the constituent entities of the Russian Federation and at the level of local self-government, it is necessary to:
take measures for targeted financing of regional and municipal programs that provide for the development
social services for families and children; introduce a protected line in the local budget providing for the financing of social service institutions;
streamline consideration of issues related to the transfer of vacated buildings, premises for institutions of social services for families and children;
organize the provision, as a matter of priority, of the establishment of social services with special rehabilitation equipment, vehicles, material and technical resources, etc.;
to form a system of training, retraining for advanced training of specialists of social service institutions, using both budgetary and non-budgetary funds for this; to strengthen the staffing of social services by social work specialists;
to strengthen the coordination of the activities of research teams and practitioners in the development of modern, social technologies, the latest forms and methods of social work with various categories of families and children;
regularly summarize and disseminate the experience of the executive authorities in the development of institutions for social services for families and children in the application of new forms and technologies of social services;
find additional grounds for raising the status of social workers.
3.1. Experience and problems of activities of social service institutions in providing assistance to families and children.
The author examines the activities of social service institutions in providing assistance to the family on the example of territorial centers of social assistance to families and children in various regions of the Russian Federation.
In a number of institutions providing social services to the population and intensively developing in recent years, a special place is occupied by territorial centers of social assistance to families and children. Performing priority functions in the system of social protection of the population, these institutions are focused on providing comprehensive social assistance, while their activities are aimed at specific categories of the population, the needs of an individual family.
The creation of centers for social assistance to families and children in various regions of the Russian Federation, the extremely important task of creating a unified all-Russian system of such centers at different territorial levels as soon as possible put two topical issues on the agenda: the content of the work of such centers and their place among other state and public bodies and organizations designed to solve the complex problems of the family.
The scope of the centers is extensive:
the centers provide assistance in obtaining benefits, allowances, compensations, monetary and in-kind assistance, loans;
exhibitions and sales of worn items, charity auctions are organized;
social patronage of large, incomplete, low-income families, social support for graduates of orphanages and boarding schools is carried out;
contacts are maintained with the employment service in resolving issues of employment, retraining;
consulting is carried out on issues of housing, family and marriage, labor, civil, pension legislation, the rights of children, women, and the disabled;
The centers provide assistance to pregnant and lactating mothers, take care of disabled children, and work on family planning issues.
The foregoing does not define all the functions of family assistance centers. Different centers solve the problems of family social services in different ways.
Sewing workshops and various kinds of workshops are opened at the centers (Ermakovskiy district center of the Krasnoyarsk Territory, most district centers in the Republic of Tuva, etc.); a material and technical base is being created for the development of folk crafts and the organization of home work for single mothers, adult members of large and single-parent families (Bolsherechensky district center Omsk region, city center in Kirov); home gardens and public gardens are organized in rural areas, where low-income families plant vegetables and potatoes for themselves, and the planting material is provided by the centers, as a rule, free of charge or at an affordable price.
Business contacts of the centers with employment services are being strengthened. Thus, the Center in the Oktyabrsky district of Barnaul, together with the city Employment Center, carried out serious work to organize jobs for teenagers from low-income families with many children (work in farmsteads, vegetable gardens, in homes for lonely elderly living in the private sector, helping them deliver water, firewood, etc.). For these purposes, some centers, together with employment services, organize youth labor exchanges.
Acting in close contact with employment services, the centers promote the employment of people in a particularly difficult life situation, organize retraining and training for the unemployed, adolescents from families in dire need at various courses on repairing household appliances, television and radio equipment, outerwear, etc. (Republic of Tuva, Republic of Dagestan, etc.) both at the centers and at other state and non-state structures.
In a number of cases, the centers organize group forms of work with the population to teach them the basics of survival in difficult socio-economic conditions. So, the Center of the Zavodskoy district of the city of Orel, within the framework of the School “Lessons of Survival”, received the skills of a home hairdresser, seamstress, home tailor, gardener, phytotherapist, manufacturer of soft toys for more than 70 people.
The range of social services provided by the centers is constantly expanding. They organize rental centers for essential items, summer playgrounds and health camps (Center of the microdistrict "Pervomaisky", Krasnoyarsk); “Nanny services” for looking after children at home during the hours of absence of parents (Center of the Solnechny microdistrict, Krasnoyarsk); Bureau of emergency social assistance to families with parents who find themselves in an emergency situation, for example, in the case of hospitalization of a single mother who does not have relatives and friends.
Having data on what certain families need (having small children, children with diabetes, children under guardianship, large families and students with children, etc.), the centers help them organize summer holidays for children, their placement in sanatorium kindergartens, dispensaries, supply of baby food, payment for sanatorium vouchers and roads to the place of treatment of patients, etc.
Many centers are paying increasing attention to the psychological support of the population, which is especially important when a significant part of families have stable moods of uncertainty about the future, prolonged psycho-emotional stress, a clear weakening of the moral foundations of the family, and a sharp aggravation of personal problems. Today, in the conditions of an extremely small number of independent psychological services, this area of activity of the centers acquires special significance.
Noteworthy experience has been accumulated by many centers of the Krasnodar Territory, centers in the cities. Sergiev Posad (Moscow region), already mentioned centers in Novgorod and Novomoskovsk (Tula region). Here, with the help of scientists, a system of psychological assistance has been developed for disabled children and their families, children from families of “risk groups”, systematic work is underway to prepare young people for family life (schools for young families, clubs for young parents operate, a system of consultations and trainings for adolescents and their parents, there are clubs of a practical psychologist "know thyself" for adolescents, the psychological readiness of children for school is revealed. Increasingly, "helplines" are opened in the centers, the leading figure of which is a psychologist.
The centers are doing a lot to improve the psychological literacy of the population, school teachers, and everyone who is directly related to working with children and adolescents. To this end, psychologists conduct seminars and classes in schools, technical schools, and police stations (the Center in Tonki, the Kemerovo region).
The attention of the centers to the promotion of a healthy lifestyle, to the issues of sexual education of adolescents and young people, the detrimental effect of alcohol on the physical and moral health of the younger generation, and its socialization is increasing. With the assistance of the centers and on their basis, clubs of anonymous alcoholics, associations of relatives and close alcoholics are created.
Within the framework of the programs implemented by the Center in the city of Bor (Nizhny Novgorod Region), the “School of Sexual Education and Psychological and Pedagogical Preparation for School” has been operating for three years. In the first half of 1996 alone, it was visited by 755 students from schools, vocational schools, and technical colleges.
The program of the School is constantly being improved and supplemented. Today, in addition to lectures, psychological and psychotherapeutic trainings are held here on the topics "Introduction to Sexology", "Family Functions", "Prevention of Aggressive Behavior", etc. Staff members of the Center (psychologist, psychotherapist, sexologist) together with doctors (pediatric gynecologist, etc. .) regularly conduct classes with teachers of schools and preschool institutions, parents.
Many centers provide assistance in solving various psychological problems related to relationships between spouses, parents and children. Often in such centers there are "helplines", clubs and societies of mutual assistance and mutual support, groups day stay children and mothers with children. This is also a place for family leisure - holidays, competitions, competitions, organizing courses on housekeeping.
The above does not exhaust the range of social services provided by centers of social assistance to families and children. Many of them organize health camps for orphans, disabled children, children from low-income families free of charge or on preferential terms during winter and summer vacations; home delivery of hot meals; repair of apartments and complex household appliances; fuel supply to low-income families with many children and single mothers; help such families to purchase everything necessary for their children to study in schools.
Among the categories and groups of the population to which the centers provide social services as a matter of priority are children with disabilities and the families where they live. Having carried out a detailed certification of families with disabled children, the Murmansk Regional Center for Social Assistance to Families and Children received comprehensive information, the analysis of which enabled the center to outline a clear plan for further work with these families. Comprehensive programs for the medical and social rehabilitation of children with disabilities were drawn up, methodological recommendations were developed for parents on caring for and raising such children, and individual rehabilitation plans for each child. The most active participation in this work, which is already bearing fruit, was taken not only by specialists from the center, but also by specialists from the regional hospital.
Assistance of the centers to children with disabilities, families where they are brought up, takes different forms. These are exhibitions young artists, mobile libraries for disabled children, evenings with their participation (Pskov Regional Center for Social Assistance to Families and Children), teaching children with disabilities art painting and woodcarving, teaching children how to use a computer (Solnechny Center, Krasnoyarsk). Many centers help families to purchase and pay for trips for children with disabilities and their travel to their destination, pay for their consultations with highly qualified specialists and solve other problems.
Constant social supervision is also necessary for other families that need the help of centers, for example, where domestic violence and cruelty are not uncommon, from which children suffer the most. The activities of a social work specialist who carries out social patronage of such a family must certainly be associated with an appropriate study of the child's behavior and, if necessary, the involvement of a psychologist.
In family studies (familistic) literature, there are 8-9 varieties of domestic violence, including psychological, moral, physical and sexual. In our society, aggressiveness has never been cultivated as a laudable personality trait, however, today the inevitable is happening: the hardships of a significant part of families turn into inhuman relations when the weak - women and children - suffer. Their growing social insecurity, increasing dependence on the head of the family provoke cruel excesses. On the other hand, the level of culture of many families is such that they perceive cruel and humiliating relationships as normal. Social surveillance, observation and scientific research in this sensitive area is difficult, but many signs show that the epidemic of domestic violence is growing. In this regard, it is especially important that the centers really help women in finding a job, retraining for a new profession, so that having a stable income, women do not depend on their husbands. Centers should be able to provide women and their children with temporary accommodation when needed. In this regard, the experience of the Center for Social Assistance to Families and Children in the city of Makhachkala (Republic of Dagestan), where the focus is on women who find themselves in a difficult, often crisis situation, deserves to be disseminated. The shelter "Nadezhda", opened at the center, provides support to women with children, including internally displaced persons. Only for 9 months in 1994, 40 women found temporary shelter in the shelter, 11 of them were employed, ten were helped to solve the problem of permanent residence.
There are frequent appeals to the centers about drunkenness in families. It is very important for the staff of the centers to find out what is the cause and what is the consequence in each specific case: internal discord and family breakdown as a result of drunkenness of one of the spouses, or whether drinking was the result of a crisis in the family, a form of illusory compensation for the dissatisfaction of one of the spouses with the existing relationships. In any case, these processes are interrelated, and the adjustment of family relations is essential.
Family conflicts are one of the most difficult tests for a family. Generally speaking, conflicts are a normal component of the course of family life; they should play a constructive and constructive role in stabilizing the functioning of the family. However, driven inside, the conflict can act destructively on the psychological state and physical health of the spouses. At the same time, conflict orientation, lack of a culture of compromise, unfavorable set of circumstances can take the process out of control and make it destructive. That is why it is so important that conflictologists work in the centers, so that specialists in family social work are familiar with the basics of conflictology.
A characteristic feature of the activities of many centers, both those that have already accumulated some experience and those that are in the process of formation, is a noticeable increase in attention to the issues of psychological assistance to the population. There is an explanation for this: today, when the old values have been devalued and new ones have not taken shape, the family needs psychological, psychotherapeutic support more than ever. This is confirmed by statistics: according to the results of a sociological survey conducted in Vologda in 1994, 73.6% of the total number of respondents need services of a psychological and pedagogical nature.
The practice of the Center for Social Assistance to Families and Children "Inspiration" (Vorkuta) is interesting. In the work of the department of counseling and psychological assistance of this center, the main thing is the diagnosis of psychological disorders in children without anomalies of mental development, psychodiagnostics. At the same time, corrective work is being carried out regarding the relationship of spouses, parents and adolescents, communication disorders among schoolchildren, etc.
Working closely with schools, secondary specialized educational institutions. The center in Elista (Republic of Kalmykia) identifies adolescents who need the help of a psychologist, and conducts trainings, psychological consultations, and interviews with them. Many centers (the cities of Barnaul, Vologda, Voronezh, Vorkuta, Pskov, etc.) carry out serious educational work to improve the psychological culture of the population, school teachers, using radio, television, the local press, and methodological seminars.
The examples cited (one could find many similar ones) clearly show how, with the assistance of centers for social assistance to families and children, a whole range of issues that are extremely important for a particular family are solved. These questions are very different, as are the life conflicts that arise in the family, in the life of a particular person.
For some visitors, the family center is their last hope: there are situations when a person is left without a home, without money, without clothes. For such needy people in many centers there are certain stocks of clothing that local residents bring, donate to charitable and religious organizations. These clothes are distributed free of charge in the centers to everyone who needs them. For this purpose, centers and charitable events are held. Practice shows that such seemingly simple help is very much needed.
This shows an important function of the centers - participation in the prevention of poverty, in order to prevent a person from "sliding" to the brink of poverty, to provide him with minimal opportunities to maintain life. Of course, the forms of implementation of this function are diverse and are not limited to material support.
Taking into account the current socio-economic situation and in order to improve the social security of the family, the centers are paying increasing attention to the employment of citizens, creating conditions that allow them to provide themselves with an adequate standard of living.
For example, an important direction in the work of the centers operating in Khimki, Pushkin, Klin, Sergiev Posad (Moscow Region) is to assist citizens in obtaining benefits, loans for starting their own business, loans for organizing work at home, folk crafts. At the Pskov regional center, courses have been opened on the repair of household appliances, television and radio equipment, repair of outerwear, where more than 50 people are involved; courses on various types of needlework, where more than 100 women are trained. The Center, together with the Association of Women Entrepreneurs, created the School "Woman in Business". As a result, more than 30 women were assisted in finding a job, more than 20 received the necessary knowledge and practical skills in registering market-type enterprises, taxation, marketing, and the basics of the economy.
Considering the practice of the institutions under consideration, I would like to note many positive trends in their functioning. However, the author considers it necessary to emphasize that only the first steps have been taken. In many subjects of the Russian Federation (about 30) there are no centers at all, often they provide a limited set of social services. There are very few centers in small towns and rural areas.
In a number of cases, the centers are overly fond of organizing evenings of rest, leisure activities, various circles: they focus on advisory activities: they cooperate poorly with local governments, the public, social institutions and services of other departments, religious and charitable organizations, commercial and business structures.
Centers for helping families and children are an important part of the social protection of families in our country. Their role is huge, because, as already mentioned, sometimes this is the only place where people can turn in case of need, so it is necessary to work on a system for the development of such institutions both locally in the regions and at the state level.
CONCLUSION
The family as a structure-forming system of social life embodies all the cardinal changes in the socio-economic relations of the transition period, refracting them at the micro-social level.
As a result of the study of the socio-economic situation of the family and children in Russia, the author draws the following conclusions:
Despite some positive moments in the economic situation, the vast majority of Russian families are very pessimistic about their standard of living and are very cautious about possible forecasts for its improvement in the future.
In a crisis, the destruction of the old infrastructure of culture, the socio-cultural role of the family in society is increasing. The family, which is experiencing serious difficulties in fulfilling its sociocultural functions, remains the leading social institution in the formation and development of socially significant values and attitudes of the individual, in the socialization and education of the younger generation.
The value of the family and family lifestyle remains very high for Russians. At the same time, the value of "personal freedom" has risen sharply. Along with this, the author considers it necessary to note that, unfortunately, the orientation of the family towards organizing and spending free time together is much higher than its implementation.
Radical reforms in politics, the economy and the social sphere could not but affect the sphere of culture, mentality and spiritual needs of Russians, their socio-cultural activities. The spirit of democracy and freedom gradually penetrates into the family. At the same time, the commercialization of culture is taking place, consumer orientations are intensifying in the mass consciousness, cultural disintegration in society is growing, leading to the emergence of a “culture of the poor” and a “culture of the rich”. The cultural infrastructure created in the country is undergoing serious deformations. Family recreation opportunities are decreasing. The number of children attending out-of-school institutions is decreasing. Many families are characterized by a constant shortage of funds and time for the upbringing and development of children, and very often this is due to the additional employment of parents.
It is important to note that in the context of social changes, the family is called upon to become an effective tool for the formation of new values and norms of behavior. It is necessary to take into account the national and regional diversity of family models and forms of family behavior aimed at meeting the spiritual and cultural needs of the peoples of the country, preserving and developing their traditions, specific features of their lifestyle, language, art, and ethnic identity.
The rating of negative feelings and emotions among the population is unusually high. This is due to the fact that the most urgent and necessary needs of people are often not met, which causes a crisis in the family. Limitation of opportunities for self-realization entails, especially among women, an increase in dissatisfaction with their family life.
In a very tense socio-psychological atmosphere, characteristic of most families, some positive trends began to appear, in particular, a conscious desire of parents to have a child is being formed, regardless of material conditions. The traditional distribution of family roles is undergoing changes. The trend towards equality and partnership of spouses, to the expansion of the participation of minor children in the economic life of the family and decision-making is becoming more pronounced.
The most active period of socialization of the younger generation is now taking place in difficult conditions of economic and political instability, the breakdown of traditional values: there is a deprofessionalization of the workforce, differentiation of incomes, criminalization of society, commercialization of health care, culture and partly education.
In Russia, there is a large-scale phenomenon of insufficient resources (spiritual and material) necessary for the survival, full development and socialization of children. This is one of the zones of formation of deviant behavior of children.
The processes of development of alienation of parents and children lead to a significant increase in social orphanhood. Child neglect is growing, growing into homelessness and vagrancy. There is a direct connection between the growth of family troubles and the growth trends in the illegal behavior of children and adolescents. A serious concern is the growth of alcoholism, drug addiction and substance abuse among teenagers. The problem of the growth of cruelty, violence, crime is one of the most urgent for Russian society, which negatively affects the process of educating the younger generation.
In the process of studying the legal framework of family policy, the author makes a number of observations related to its development and improvement. With the adoption of Decree of the President of the Russian Federation of May 14, 1996 No. 712 “On the Main Directions of State Family Policy”, for the first time in our country, family policy received state status and an official definition. Targeted family policy programs have been developed and are being implemented in a number of regions. A network of institutions for social assistance to families and children is developing in Russia. The most developed forms of state family policy are economic measures to support families with children in the form of a set of benefits and allowances, but there are practically no effective forms of assistance to families in organizing intra-family economic activities.
A significant step in the sphere of regulation of marriage and family relations was the adoption in March 1996 of the Family Code of the Russian Federation, which to a large extent reflects the new socio-economic realities. In a number of legislative acts adopted in recent years, attention has been paid to ensuring favorable conditions for workers, especially women, in order to successfully combine professional and family responsibilities.
In the field of creating favorable conditions for the family to implement the educational function, family policy is most closely linked with the policy in the interests of children. Among the main directions of the state family policy is also considered the strengthening of assistance to the family in the upbringing of children. However, the measures taken so far by the state to create optimal living conditions for children in the family for their full-fledged physical, intellectual, spiritual, moral and social development, for their education in general, are insufficient for the implementation of the educational function of the family.
Preserving the health and life of newborn children, maintaining and restoring the health of all family members are the most important functions of family policy, the implementation of which requires a well-organized material base and close cooperation of the family with health care institutions and other social institutions. In the Russian Federation, the concept of a family-oriented approach to the provision of medical care is being formed, a law on the protection of the reproductive rights of citizens is being developed, and the federal programs “Family Planning” and “Safe Motherhood” are in operation.
It is important to note that at present there is no special procedure for registering and recording families that fall into special conditions, as well as indicators that allow for a scientifically based classification of families in special conditions, as a result of which a number of categories of families are outside the scope of state policy, mainly aimed at assistance to families with disabled children, families of refugees and internally displaced persons, maladjusted teenagers.
The study showed that the development of a system of social services for families is a necessary link in a holistic system of measures aimed at improving the situation of families and children in Russia. The most important step in this direction is the Federal Law "On the Fundamentals of Social Services for the Population of the Russian Federation".
At present, families have received more opportunities to use the services of a developing system of social services aimed at taking into account the characteristics of the family as a natural environment for the life of the individual and the life support of children. Unfortunately, so far an integrated approach to the formation and development of territorial services for the problems of the family, children and youth is characteristic of only a few territories in Russia.
The analysis of the socio-economic situation of families presented in this paper confirms once again that against the background of the economic and financial disorder in Russia, the family and children are the most vulnerable and in need of social protection measures adequate to the catastrophic state of society. And one of the forms of the most real and complete assistance to families can be the opening of territorial Centers for social assistance to families and children.
In this paper, this is confirmed by an analysis of the experience of the territorial Centers for social assistance to families and children in various regions of Russia.
The result of the study, the author substantiated as a conclusion that, despite the difficulties of formation (formation of staff and selection of personnel, lack of premises, financial resources, motor transport, insufficient scientific, methodological and informatization support, etc.) social service centers, they really help to solve problems related to the organization of social services for families and children at the territorial level. Territorial social service centers serve as a reliable apparatus for identifying the categories of the population most in need of social protection and as a conductor of advanced methods and techniques in the work of social protection services for families and children.
The main result of this work, according to the author, is that the state family policy is of particular importance in modern Russia, when the historical processes of family transformation, which in themselves are painful and contradictory, are intertwined with the most acute problems caused by the socio-economic crisis. The need for a strong state family policy is primarily due to social needs. By its nature and purpose, the family is an ally of society in solving its fundamental problems, establishing moral principles, socializing children, developing culture and the economy. Society is interested in an active family capable of developing and implementing its own life strategy, ensuring not only its own survival, but also development.
However, the interests and opportunities of the family are realized today is extremely insufficient. The formation of a full-fledged family policy in the country is complicated by the underdevelopment of the legislative framework for family policy, strategies, practical mechanisms and technologies for its implementation; underestimation of family policy as an independent direction state activities, primarily at the federal level; the absence of a medium-term program for the stabilization, strengthening and development of the social institution of the family, the corresponding mechanisms for its implementation; a set of objective and subjective factors that preserve the residual principle of financial, logistical, and staffing of family policy.
The most important task of family policy should be the development and implementation of strategies and mechanisms to actively develop the potential of the family through the improvement of its relations with the state, the fuller realization of institutional rights and needs. Family policy, supplementing and deepening general social measures, is designed to help solve specific problems of the family, which is of particular importance during the reform period.
BIBLIOGRAPHY
Aleshina Yu.E., Gozman L.Ya., Dubrovskaya E.M. Socio-psychological methods of research of marital relations. - M., 1987.
Anthology of social work. - M. - T. 3.
Bodrova V.V. Reproductive Orientations of the Russian Population // Economic and Social Changes: Public Opinion Monitoring. Newsletter. VCIOM. - 1997. - No. 3.
Borisov V.A., Sinelnikov A.B. Family and demographic trends. Ser.: Social assistance to families and children. 1995. Issue. 2. - M .: Research Institute of the Family and TsBNTI of the Ministry of Social Protection of the Russian Federation, 1995.
Borisov V.A., Sinelnikov A.B. Marriage and fertility in Russia: a demographic analysis. - M .: Research Institute of the Family of the Ministry of Social Protection of the Russian Federation, 1995.
Darmodekhin S.V. State family policy: problems of scientific development. - M., 1995.
Darmodekhin S.V. The main directions of state family policy. National family action plan for the medium term. Science project. - M., 1996.
Housing problems of families and the cost of housing and communal services. - M .: Research Institute of the Family, 1997.
Zayonchkovskaya Zh. Forced migrants from the CIS and Baltic countries in Russia. - Newsletter. TsDECH INCP RAS. - 1997. - No. 18.
Zubova L.G. Personal income: comparison of official statistics and results of sociological monitoring. - Economic and social changes: public opinion monitoring. Newsletter. VCIOM. - 1995. - No. 3.
Population: Encyclopedic Dictionary, - M .: Great Russian Encyclopedia, 1994.
Normative-legal bases of social services for families, women and children: Collection of materials and normative documents. - M.: Institute of social work, 1997. - 164 p.
Collection of federal constitutional laws. - 1995. - Issue 7-12.
Collection of acts of the President and Government of the Russian Federation. - 1992-1995. - Issue 1-10 and others.
Family in Russia. - M .: Research Institute of the Family, 1995. - No. 1.
APPENDIX Appendix 1
Order of the Ministry
social protection
population
Russian Federation
EXAMPLE REGULATIONS ON THE TERRITORIAL CENTER OF SOCIAL ASSISTANCE FOR THE FAMILY AND CHILDREN
I. GENERAL PROVISIONS
1.1. The Territorial Center for Social Assistance to Families and Children is an institution of the state system of social protection of the population, intended for comprehensive services in the city, district or microdistrict of families and children in need of social support, by providing timely and qualified social assistance of various types: socio-economic , psychological and social, socio-pedagogical, medical and social, legal, social and rehabilitation and other.
1.2. The Center is created, reorganized and liquidated by local executive authorities in agreement with the relevant territorial bodies of social protection of the population, and its structural units are created, reorganized and liquidated by the decision of the Director of the Center in agreement with the territorial bodies of social protection of the population.
1.3. The Center is organized and maintained at the expense of funds provided by the budgets of the republics within the Russian Federation, territories, regions, autonomous regions, autonomous districts, cities of Moscow and St. Petersburg, other cities and regions for social security, as well as at the expense of income from economic activity Center and other extrabudgetary income.
1.4. The Center carries out its activities under the leadership of the relevant bodies of social protection of the population and executive power within their competence. The ministries of social protection of the population of the republics within the Russian Federation, the bodies of social protection of the population of territories, regions, autonomous regions, autonomous districts, cities and regions coordinate the activities of centers located on their territory and provide them with organizational, methodological and practical assistance.
1.5. The Center is a legal entity, has its own bank accounts, seal, stamp and letterhead with the name of the Center.
1.6. The Center and its structural subdivisions are located in a specially designed building (buildings) or premises allocated in administrative or residential buildings. The premises of the Center must be provided with all types of public amenities, equipped with a telephone connection and meet sanitary and hygienic and fire safety requirements.
1.7. The Center may have in its structure various departments of social services for families and children, including departments for primary admission, information, analysis and forecasting, socio-economic assistance, medical and social assistance, psychological and pedagogical assistance, prevention of neglect of children and adolescents, as well as others, created taking into account the need and available opportunities; whose activities do not contradict the tasks of the Center. All structural subdivisions of the Center report to the Director of the Center in their activities. A city, district Center may have branches in microdistricts as structural subdivisions.
1.8. The staff list of the Center is approved by the Director within the limits of the established payroll fund in relation to the attached staff.
1.9. The internal labor regulations of the Center and its structural subdivisions are approved by the general meeting (conference) of their employees on the proposal of the administration of the Center - and the rules of conduct for citizens served by the Center and its structural subdivisions, by the director of the Center.
II. PURPOSE AND MAIN OBJECTIVES OF THE CENTER, CATEGORY OF SERVICED PERSONS
2.1. The purpose of the Center is to promote the realization of the right of the family and children to protection and assistance from the state, to promote the development and strengthening of the family as a family. social institution, improvement of socio-economic conditions of life, indicators of social health and well-being of the family and children, humanization of family ties with society and the state, establishment of harmonious intra-family relations.
2.2. The main tasks of the Center are: to identify, together with state and non-governmental organizations (authorities and institutions of education, health, internal affairs, employment, migration, associations of large families, single-parent families, parents of children with disabilities and others) the causes and factors of social disadvantage of specific families and children, their need for social assistance;
determination and provision of specific types and forms of socio-economic, medical-social, psychological-social, socio-pedagogical, legal and other social services to families and children in need of social assistance;
support for families and individuals in solving the problems of their self-sufficiency, realizing their own capabilities to overcome difficult life situations;
social patronage of families and individual citizens in need of social assistance, rehabilitation and support;
participation in the work on the prevention of neglect of minors, the protection of their rights;
analysis of the level of social services for families with children in the city, district, microdistrict, forecasting their need for social assistance and preparing proposals for the development of social services;
involvement of various state and non-governmental organizations in solving issues of social services for families and children.
2.3.1 Families:
large, incomplete, childless, divorcing, young, underage parents;
low-income;
having terminally ill people, disabled people or people suffering from mental illness, alcohol abusers, drug users;
with an unfavorable psychological microclimate, emotional-conflict relations, pedagogical failure of parents, child abuse;
2.3.2.Children and adolescents:
found themselves in unfavorable family conditions. threatening health and development;
orphaned or left without parental care;
in need of a device in connection with the cancellation or invalidation of adoption, guardianship;
those with deviations in physical and mental development, including the disabled;
allowing antisocial behavior, homeless, experiencing a negative impact at the place of residence, study. work (abuse, violence, insult, humiliation, extortion, initiation to alcohol, drugs, involvement in illegal activities), experiencing acute conflict situations with parents, teachers, neighbors, acquaintances;
having difficulties in relationships with other people, in professional and life self-determination.
2, Z.Z. Adult citizens:
pregnant women and nursing mothers;
mothers who wish to find temporary work, part-time work, work at home or other specified conditions;
having dependent minor children;
partially able-bodied, wishing to get an affordable job, taking into account the state of health;
former spouses living in the same apartment;
experiencing difficulties in relationships with children, relatives, colleagues and other people.
2.2.4. Former pupils of orphanages and boarding schools (minors and adults).
2.3. Clients have the right to apply to the Center in person, by phone, as well as send a written application or request.
anonymous contact of clients for certain types of assistance is allowed.
Communication between clients and employees of the Center can take place outside the Center.
At the invitation of families, the staff of the Center can serve clients at home. III. STRUCTURAL DIVISIONS OF THE CENTER
3.1. Department of primary admission, information, analysis and forecasting. The department is intended to identify the needs of citizens who have applied to the Center for specific types of social services, to identify such needs in families and children; living in the service area, informing residents about the services provided by the Center, analyzing the real and future needs for them. The activities of the department are: the initial reception of citizens in the Center and the identification of their needs for social services; sending them to the relevant functional departments of the Center;
advertising and promotional work (dissemination of information about the tasks and content of the Center for Social Assistance, advertising of the services provided by the Center, promotion of ideas of strengthening and supporting families and children in local media, publication of leaflets, manuals and other information and promotional materials to help the family in various issues of her life);
analytical and prognostic work (assessment of the socio-demographic characteristics of the population living in a given territory, trends in social and family development, causes of trouble, identification and consideration of the population's opinion on the quality and content of social assistance provided, the current and future needs for it; development on this basis proposals for improving social work, planning the social development of the region);
information work (identifying, collecting, summarizing and bringing to the interested departments of the Center official statistics and operational information received from local government bodies and other sources about people in need of social assistance or about facts requiring the intervention of the social service: organization of a telephone "hot line" for urgent appeal of citizens in cases requiring urgent intervention of the social service; selection of letters from the mail that require a written consultation of the Center's specialists; creation of a "data bank" about families and individuals in need of social patronage);
methodical work (study, generalization and dissemination of effective forms and methods of social work; advanced training of employees, familiarizing them with advanced domestic and foreign experience in social work; acquisition of the methodological library of the Center).
3.2.Department of socio-economic assistance.
The department is created to provide needy families and individual citizens with services of a socio-economic nature.
The activities of the department are: assistance in obtaining benefits, allowances, compensations and other payments, material and in-kind assistance, loans, alimony, improvement of housing conditions in accordance with applicable law;
organizing events to raise funds to help low-income families (exhibitions and sales of second-hand items, charity auctions, lotteries, etc.);
advising on issues of family self-sufficiency, development of family business, home-based crafts;
social patronage of large, incomplete, low-income families, social support for graduates of orphanages and boarding schools in initial stage independent life until reaching the age of majority and material independence;
assistance in solving employment issues, enrollment in retraining courses;
consulting on social and legal issues (housing, family and marriage, labor, civil, pension legislation, rights of children, women, disabled people).
3.4.Department of medical and social assistance.
The department is created for the implementation of: social patronage of pregnant women and nursing mothers, families where there are persons with mental health disorders, alcohol abusers, drug users, as well as those who have undergone treatment for alcoholism, drug addiction and substance abuse;
individual work with adolescents and young people to prevent and get rid of bad habits, to prepare for the creation of a family and the birth of a child;
assistance in improving the life, treatment, education, training of disabled people and children with disabilities in mental and physical development, brought up at home;
counseling on medical and social issues (family planning, modern contraception, food and housing hygiene, getting rid of excess weight, bad habits, sexual disorders, psychosexual development of children and adolescents, etc.).
3.5.Department of psychological and pedagogical assistance.
The department is formed to provide: patronage of families with unfavorable psychological and socio-pedagogical conditions;
assisting parents in raising children and overcoming pedagogical errors and conflict situations with children, family conflicts;
organization of the work of day care groups for children and mothers with children;
providing emergency psychological assistance through the "helpline";
creation of societies, clubs of mutual assistance of residents in the served territory;
counseling on psychological and pedagogical issues (features of age and individual development of children, overcoming pedagogical neglect, family conflicts, methods of family education, choice of profession and life self-determination, interpersonal and intra-family relations, etc.);
organization of family and children's holidays, competitions and competitions. 3.6.Department of prevention of neglect of children and adolescents.
The department is created with the aim of providing social patronage for maladjusted children and adolescents prone to antisocial acts and illegal behavior, as well as social assistance to orphans and children left without parental care.
3.7. Social services are provided by the Center, as a rule, free of charge.
By decision of the management of the Center and the local administration, certain social services can be provided for a fee (consultations, temporary maintenance of children, etc.). Funds collected for the provision of certain types of social services are credited to the account of the Center and directed to its development, improvement of social services for clients in excess of the allocated budget allocations.
3.8. Specialists in social work and other employees of the Center, whose performance of official duties is associated with the use public transport tickets are issued.
The costs of providing employees with travel tickets are included in the cost estimate for the maintenance of the relevant department of the Center.
The director of the Center, based on their operational needs, may, within the established planned payroll fund, introduce positions in the staff of the Center and its structural divisions that are not provided for by the attached standards.
Remuneration of employees of the Center, which is on budget financing, is made in accordance with the current system of remuneration.
By decision of the government of the republics within the Russian Federation, the executive authorities of the territories, regions, the autonomous region, autonomous districts, the cities of Moscow and St. Petersburg, other cities and regions, as well as local self-government. The Center may apply other organizational forms of social services for families and children, incl. in stationary conditions.
Appendix 2
Approximate staffing of the territorial Center for Social Assistance to Families and Children and its structural divisions
1. Office of the Center
| No. p / p | Job title | Number of staff units | |
| With up to 3 branches | If there are 3 or more branches | ||
| 1. | Center Director | 1,0 | 1,0 |
| 2. | Deputy Director | 1,0 | 1,0 |
| 3. | Chief Accountant | 1,0 | 1,0 |
| 4. | Accountant, cashier | 1,0 | 1,0 |
| 5. | Inspector | 0,5 | 1,0 |
| 6. | Head of the household | 0,5 | 1,0 |
| 7. | typist secretary | 0,5 | 1,0 |
| 8. | Technician | 0,5 | 1,0 |
| 9. | Car driver | - | 1,0 |
| 10. | office cleaner room | 1,0 | 1,0 |
| 11. | watchman | 3,0 | 3,0 |
2. Department of primary reception of information, analysis and forecasting
1. Head of department 1.0
3. Sociologist 1.0
4. Editor 1.0
5. Methodist 1.0
Department of socio-economic assistance
1. Head of department 1.0
2. Specialist in social work 1.0 rate per 15 thousand population
3. Economist 1.0
4. Legal Advisor 1.0
4. Department of medical and social assistance
1. Head of department 1.0
2. Specialist in social work 1.0 rate per 15 thousand population
3. Valeologist 1.0
4. Narcologist 1.0
5. Sexologist 1.0
5. Department of psychological and pedagogical assistance
1. Head of department 1.0
2. Specialist in social work 1.0 rate per 15 thousand population
3. Psychologist 1.0
4. Social educator 1.0
Department for Prevention of Neglect of Children and Adolescents
1. Head of department 1.0
2. Specialist in social work 1.0 rate per 15 thousand population
Annex 3
"SOCIAL PASSPORT OF THE FAMILY"Data to be entered on the card: 19. Living conditions
1. Address: us. point, street, house, telephone => dilapidated housing (not suitable for
2. F.I.0. husband, date of birth)
3. F.I.0. wife, date of birth => major renovation required
4. Names of children, dates of birth => partial repair or refurbishment
=> up to 6 years old => expansion of living space
=> from 6 to 16 years old 20. Health status of family members
=> from 1 6 to 18 years old => adults with disabilities
=> single-parent families => chronic diseases
a) brought up by one mother 21. Awards, honorary titles, benefits
b) brought up by one father 22. Is it registered with the Center or not.
c) brought up by one grandmother, grandfather 23. The main problems of the family.
or one of the relatives
d) raised by a single mother
7. Number of children in the family
=> 1 child
=> 2 children
=> large
b) four, etc.
8. Family with a ward child (if there are ward children, then their full name and date of birth)
9. Refugee families with children
10. Teens under 18 who don't work or study
11. Education
=> higher
=> cf. special
=> average
=> 9 cells. and less
12. Specialty
=> humanist.
=> technical
=> healthcare
=> teacher
=> economic
=> trade, supply
=> rural specialties
=> construction
=> masters of various profiles
13. Place of work and position of the husband
Place of work and position of the wife
14. Seniority of the husband, Seniority of the wife
15. Family income (needy or not)
16. The presence of a personal plot
17. The presence of a subsidiary farm
18. Availability of housing (needed or not)
Appendix 4
SOCIAL CARDF.I.0. ________________________________________________________________________________________
Residents at ________________________________________________________________________
Footprint _____________________________________________________________________________
Total family members _________________________________________________________________________________
Father (stepfather) ___________________________________________________________________________________________
Mother (stepmother) _________________________________________________________________________________
(Place of work) __________________________________________________________________________________
Son daughter):
1) ______________________________________________________________________________ _______________
2) ______________________________________________________________________________________________
3) ______________________________________________________________________________________________
4) ______________________________________________________________________________________________
5) ______________________________________________________________________________________________
6) ______________________________________________________________________________________________
(Indicate the age of the child, place of study, № d / c, place of work if working).
Family budget:
Parents' salary:
Father: ___________________________________________________________________________________________
Mother:___________________________________________________________________________________________
Benefits: for children ________________________________________________________________________________
Unemployment ___________________________________________________________________________
maternity _________________________________________________________________________________
Pension: by age______________________________________________________________________________
on the occasion of the loss of a breadwinner _______________________________________________________________
on disability _________________________________________________________________________
Alimony ________________________________________________________________________________________
Scholarship_______________________________________________________________________________________
Financial assistance from the social security service _________________________________________________
Discounted meals at school _____________________________________________________________________________
Free maintenance of children in the nursery __________________________________________________________________
Presence of a subsidiary farm _________________________________________________________________________
suburban area ________________________________________________________________________________
Benefits for rent _____________________________________________________________________________
Telephone ________________________________________________________________________________________
Electricity __________________________________________________________________________________
What help is needed from the social service of the city? __________________________________
Consulting on social benefits and registration,
clarification of laws on social issues.
Psychological conversation with a specialist.
Medical care at home social. worker,
providing free meals.
material money,
natural (shoes, clothing., food)
(please specify)
Other information:_________________________________________________________________
________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
"___" _____________ 199
Social Work Specialist ___________________________________
See: Darmodekhin S.V. State family policy: problems of scientific development. - M., 1995; Golov A.A. Constant fears of Russians // Economic and social changes: public opinion monitoring. Newsletter. VCIOM. - 1995. - No. 2; Housing problems of families and the cost of housing and communal services. - M .: Research Institute of the Family, 1997; Borisov V., Sinelnikov A. Family and demographic trends. Ser.: Social assistance to families and children. 1995. Issue. 2. - M .: Research Institute of the Family and TsBNTI of the Ministry of Social Protection of the Russian Federation, 1995; Bodrova V.V. Reproductive Orientations of the Russian Population // Economic and Social Changes: Public Opinion Monitoring. Newsletter. VCIOM. - 1997. - No. 3.
See: Collection of federal constitutional laws. - 1995. - Issue 7-12; Anthology of social work. - M. - T. 3; Collection of acts of the President and Government of the Russian Federation. - 1992-1995. - Issue 1-10 and others.
See: Darmodekhin S.V. The main directions of state family policy. National family action plan for the medium term. Science project. - M., 1996.
See: Zubova L.G. Personal income: comparison of official statistics and results of sociological monitoring. - Economic and social changes: public opinion monitoring. Newsletter. VCIOM. - 1995. - No. 3.
See: Golov A.A. Constant fears of Russians // Economic and social changes: public opinion monitoring. Newsletter. VCIOM. - 1995. - No. 2.
See: Aleshina Yu.E., Gozman L.Ya., Dubrovskaya E.M. Socio-psychological methods of research of marital relations. - M., 1987.
Golov A.A. Constant fears of Russians // Economic and social changes: public opinion monitoring. Newsletter. VCIOM. - 1995. - No. 2.
See: Darmodekhin S.V. State family policy: problems of scientific development. - M., 1995.
See: Regulatory Framework for Social Services for the Family, Women and Children: Collection of Materials and Regulatory Documents. - M.: Institute of social work, 1997. - 164 p.
See: Regulatory Framework for Social Services for the Family, Women and Children: Collection of Materials and Regulatory Documents. - M.: Institute of social work, 1997. - 164 p.
See: Regulatory Framework for Social Services for the Family, Women and Children: Collection of Materials and Regulatory Documents. - M.: Institute of social work, 1997. - 164 p.
See: Family in Russia. - M .: Research Institute of the Family, 1995. - No. 1.
MOSCOW STATE SOCIAL UNIVERSITY
INSTITUTE OF SOCIAL WORK
Anapa branch of MGSU
FACULTY OF SOCIAL WORK AND ADMINISTRATION
Admit to the protection Head. department
________________________
1999
Graduate work
on the topic: State family policy: essence and content.
480 rub. | 150 UAH | $7.5 ", MOUSEOFF, FGCOLOR, "#FFFFCC",BGCOLOR, "#393939");" onMouseOut="return nd();"> Thesis - 480 rubles, shipping 10 minutes 24 hours a day, seven days a week and holidays
240 rub. | 75 UAH | $3.75 ", MOUSEOFF, FGCOLOR, "#FFFFCC",BGCOLOR, "#393939");" onMouseOut="return nd();"> Abstract - 240 rubles, delivery 1-3 hours, from 10-19 (Moscow time), except Sunday
Galkina Nina Nikolaevna Public administration in the field of family policy implementation: Dis. ... cand. legal Sciences: 12.00.02: Moscow, 1997 184 p. RSL OD, 61:98-12/217-4
Introduction
Chapter 1. Legal foundations of state administration in the sphere of regulation of family relations, protection of the family and implementation of family policy 14
1.1 Features, concept and essence of public administration in the field of family policy implementation and family protection 14
1.2 The institution of the family as an object of state legal regulation. Historical and legal aspect 45
1.3 Acts of state administration in the system of legal acts aimed at regulating family relations and protecting the family 81
Chapter 2. Increasing the efficiency and optimization of the activities of public administration bodies aimed at protecting and strengthening the family 107
2.1 Problems of public administration in the field of family policy implementation 107
2.2 Ways to improve the activities of government bodies aimed at protecting and strengthening the family 136
Conclusion 163
List of used sources and literature 166
Abbreviations index 184
Introduction to work
The relevance of research. Serious socio-economic changes and transformations currently taking place in the Russian Federation affect all aspects of the life of society,
of all its members and they are most closely associated with the comprehensive
change in the institution of the family. The family, being one of the most
ancient forms of social community of people, is
a specific social institution connected to all spheres
social life by a complex system of connections, manifested in
primarily through family functions. Throughout the 20th century, the family
Russia has experienced profound changes. It was affected by such factors,
as civil and Great Patriotic Wars, collectivization,
period of "stagnation", almost full employment of all able-bodied women
in production, constantly overcoming material difficulties,
slow solution of the housing issue, negative effect
administrative and bureaucratic apparatus, problems in
international relations.
Turning to statistics, now we can talk about the process of depopulation that has already begun, the possibility of which was denied by the majority of demographers back in the 70s. The demographic crisis covered all aspects of population reproduction. Since 1992, there has been a decrease in the population of the country, due to a huge negative natural increase: the excess of the number of deaths over the number of births in 1992 was 31 thousand people, in 1993 - 750 thousand, in 1994 - more than 920 thousand people. In 1995, there was a slight decrease in the natural decline in the population. Only thanks to the sharply increased positive balance of migration, the absolute reduction in the number was not as
large-scale. According to the forecast of the State Statistics Committee of the Russian Federation, over the decade, from 1995 to 2005, the total reduction in the country's population will be 9 million people due to negative natural growth.
In 1993-1994 all birth rates reached unprecedented lows. Moreover, public opinion monitoring conducted by VTsIOM shows a continuous decrease in the expected number of children in families, which indicates an inevitable decline in the birth rate in the country in the foreseeable future.
Now more and more people are talking about the family policy of the state and
separating it from the sphere of social state policy, which, as
times and is caused by changes in the institution of the family, which
viewed as social problems. In addition to declining birth rates and family size, this is a declining marriage rate; an increase in the number of divorces and spouses living separately; increasing the number of actual marriages; an increase in the number of children born out of wedlock; an increase in the number of single-parent families headed by women; a change in the distribution of family responsibilities due to the growing involvement of women in the labor force.
The expanding range of problems of the Russian family includes an increase in the number of child abandonment, cases of infanticide, galloping child and adolescent crime, an increase in emotional alienation between spouses, between parents and children, alienation leading, among other things, to an increase in child deprivation and neglect. Family deviation is growing: the prevalence of alcohol and drug abuse is increasing, cases of domestic violence are becoming more frequent.
We are currently witnessing a sharp and unprecedented increase in the degree of economic differentiation, expressed in deep inequalities in income, property and start-ups.
opportunities for adolescents, rights and control over capital, and a catastrophic decline in the quality of human potential, expressed in the deterioration of the physical and mental health of the population, the degradation of general education and vocational training, the devaluation of the values of education, professional growth and effective productive labor, in the destruction of moral and other values, in the growth of social pathology.
The superstatization (superstate) of all social life hastened the onset of the family crisis, had a devastating effect on the family and family values, no matter in what form (violent, as in the 20s and 30s, or milder, as in the post-war period, and especially during the years of the so-called stagnation), the state intervened in the life of the family.
These problems did not arise all at once. AT
post-revolutionary time Codes on marriage and family of 1918 and 1926
years, the almost complete denial of marriage and
families, sexual "freedom" and "one hundred percent" equality of women,
which created the appearance of a new status for women,
minor children, marriage. But in these and other normative acts of that time, the concept of "family" practically did not exist, since the state, aimed at socialism and communism, put the family at the center of legal decisions not as an individual-personal, but as a social cell, intending to free it from the functions of a purely household. The idea of public upbringing of children from an early age was promoted and partially implemented, depriving the family of its main function, which in its essence contradicted the main interests of parents and children, negatively affecting family and kinship ties.
For many years, the existence of the family was completely dependent on the state, as it sought to totally regulate and control marital relations, ideologized the upbringing of children, and encouraged the intervention of state and even public bodies in resolving family disputes and conflicts. Such an orientation of state administration in relation to the family, expressed in the adoption of various normative acts, including acts of administration, could not help strengthen the family and family relations, which was the reason for some changes in state policy regarding the family.
The principle of protecting the family by the state, enshrined in the current Constitution of the Russian Federation, naturally presupposes the existence of a state mechanism for its implementation, presupposes the effective activity of the relevant governing bodies, the main function of which is lawmaking.
Given all of the above, it seems not only relevant, but also extremely necessary to study theoretical problems state administration, the object of which is specific marriage and family relations covered by the institution of the family, the development of management methodology in the field of family policy implementation and family protection, as well as the search for ways to increase the efficiency and optimize the mechanisms for the implementation of management activities in this area, which ultimately should serve solution of the above-mentioned problems facing the state and society.
The state of scientific development of the topic. Problems
state administration in the field of family policy implementation, family protection, attract the attention of not only legal scholars, but also sociologists, demographers, economists, psychologists, philosophers.
Methodologically significant are the works of legal scholars,
investigating issues of public administration and legal regulation: A.P. Alekhin, G.V. Atamanchuk, A.Ya. Berchenko, D.N. Bahrakh, I.L. Bachilo, R.F. Yu.M.Kozlov, B.P.Kurashvili, B.N.Gabrichidze, G.V.Maltsev and others.
Important approaches to family policy and mechanisms for its implementation were formed by such scientists as A.I. Antonov, S.V. Darmodekhin, V.N. Ivanov, E.A. Kozlov, M.S. Matskovsky, V.M. .M.Rimashevskaya, A.B.Sinelnikov and others.
The issues of the historical development of state-legal regulation of marriage and family relations in Russia were considered in the works of O.S. Ioffe, A.I. Zagorovsky, G.K. Matveev, A.M. Nechaeva, A.G. Kharchev, N.A. Shebanova and a number of other scientists.
In order to achieve complexity, the thesis reflects the modern experience of other countries in the field of legal regulation of family relations and the implementation of legal protection of the family. The author used the theoretical provisions and conclusions of the works of such authors as Barnes D., Bosants M., Vitek K., Grandke A., Dugi L., Carlson A., Popenoe D., Fidgor G., as well as other foreign researchers.
At the same time, systematic management and legal research in the field of family policy implementation was practically not carried out. Sections of the theory of public administration in relation to this specific area have not been developed, and ways to improve management activities aimed at removing the institution of the family from a crisis state have not yet been found. This study is devoted to the substantiation of a number of ideas and judgments on these problems.
Object of study is the state administration in the field of family policy implementation, as well as its place and role in
the practical implementation of constitutional provisions for the protection of the family.
Subject of study
- general principles of implementation
management activities aimed at protecting, strengthening
families, regulation of marriage and family relations in Russia, complex
factors influencing the formation of the mechanism
implementation of the state family policy, efficiency
legal means used by the state to create
normal conditions for creating a family, the implementation of its
life and performance of all its functions.
The purpose of the dissertation research is to on the based on a comparative legal and historical analysis of domestic and foreign practice, to explore the specifics of public administration in the field of family policy implementation, to determine the place and role of management mechanisms in the practical implementation of the constitutional provision on the legal protection of the family and the implementation of state family policy.
Based on this, the author sets himself the following tasks : to analyze the ideas that have developed in the scientific literature about the implementation of managerial activities aimed at regulating family relations and implementing the constitutional principle of protecting the family;
to study the legal nature and features of public administration in the field of family policy implementation, family protection;
to identify the specifics of the state-legal regulation of family relations in the process of their historical development;
show the legal basis for the emergence and implementation of management activities aimed at protecting and strengthening the family;
to study the specifics of the operation of legal norms in the field of public administration, aimed at the implementation of family policy, the regulation of family relations and the protection of the family;
explore the role of management acts in the mechanism of legal regulation of family relations;
to analyze the system of legal acts, including acts of management, forming a mechanism for the implementation of state policy;
Develop concrete proposals to ensure
changes in the legal framework of public administration in
the sphere of family policy implementation;
Methodological and theoretical basis d thesis is a dialectical-materialistic method of cognition of social and legal processes and phenomena, as well as concrete scientific methods arising from it: a systematic approach, structural-functional analysis, comparative and sociological methods, the unity of a concrete historical and conceptual study of phenomena and processes, as well as socio-legal methods of analysis and interpretation of normative acts.
The dissertation uses the works of legal scholars, philosophers, sociologists, demographers, economists concerning the problems of public administration, legal regulation of family relations, and the implementation of state family policy.
Normative base of research constitute the Constitution of the Russian Federation, the laws of the Russian Federation, acts of state administration, the legislation of a number of foreign states (the dissertation provides an analysis of regulations as of July 1, 1997).
Empy ric base research served as materials of scientific and scientific-practical conferences, international
congresses and seminars on the problems of protecting and strengthening the family,
improvement of state-legal regulation of marriage
family relations (held in Russia, Germany, Czech Republic in 1994-
1997), the practice of work of state authorities and
local government, materials of periodicals, data
Goskomstat of the Russian Federation and foreign statistics, as well as our own experience
the author's work in the Committee on Women, Family and Youth Affairs
State Duma of the Russian Federation, in the Charitable
fund of the municipal district "Dorogomilovo" Western
administrative district of Moscow and cooperation with
public organizations whose activities are aimed at protecting and strengthening the family.
Scientific novelty dissertation work is determined by the fact that it is one of the first attempts to comprehensively study the features and problems of public administration in the field of implementing family policy, strengthening the family, regulating marriage and family relations in Russia, as well as the role of government acts in the system of legal means for exercising public administration functions in ensuring the legal protection of the family.
shows the features of public administration in the field of family policy implementation as a system of organizational, economic and other relationships between the subject (state) and the object (a set of specific social relations covered by the institution of the family), which are purposefully mediated by law in the interests of both society and the family;
substantiates the need to improve the legal framework of the state family policy;
Measures have been outlined to improve the management
activities aimed at protecting and strengthening the family, creating
optimal conditions for the exercise of its functions;
The proposition is substantiated that the managerial
processes in the field of legal protection of the family are not only the implementation
certain legal norms, but also a specific tool
social impact. This effect is characterized as
a complex set of different-quality incentives, restrictions,
permissions introduced taking into account the situational dynamics of factors
marriage and family behavior and implemented in legal form
(determination of goals and program of legal impact, collection,
processing and evaluation of various types of information, preparation and
making legal decisions, their implementation, etc.).
The dissertation expresses the author's understanding of the content of public administration aimed at the implementation of the legal and social protection of the institution of the family. An attempt was made to give a deeper coverage of the problems of management in the sphere of the implementation of state family policy in Russia. In a new aspect, the entire system of legal acts of the state, aimed at the implementation of social protection of citizens, is considered.
The proposals and conclusions obtained as a result of the study, reflecting the author's position on theoretical and practical problems of public administration in the field of family policy implementation, are submitted for defense, namely:
Conclusion that public administration in the region
implementation of family policy is special kind managerial
activities arising in the process of performing functions
states aimed at strengthening the family as a social
Institute, creating optimal conditions for ensuring its
life;
The conclusion is that in the context of the transition to market relations, public administration in the field of family policy implementation, family protection acquires new features, therefore, it requires in-depth study in order to optimize it and increase efficiency.
Practical significance of the study is that the conclusions obtained in the course of the study and the practical proposals formulated on their basis can provide an increase in the scientific level of public administration in the field of family policy implementation; contribute to the approval of a scientifically based approach in the development of the legal framework of the state family policy.
Conclusions formulated in the dissertation and proposals can, according to the author, create a certain theoretical and methodological basis for the rule-making activities of state authorities acting in the field of protecting and strengthening the family, improving the current legislation in the field of family policy implementation.
Approbation of the research results was held by the author at the International Conference "The Future of Russia and the Latest Sociological Approaches" held in Moscow on February 10-12, 1997 and at the International Congress of Families in Prague on March 19-22, 1997.
The dissertation proposals for improvement
organizational and legal activities of local authorities
self-government, aimed at providing social support to the family, have been introduced into the practice of the Administration of the municipal district "Dorogomilovo" of the Western Administrative District of Moscow.
Many theoretical positions of the dissertation were tested in the process of reading by the author of a course of lectures for students of the Russian Academy of Public Administration under the President of the Russian Federation.
Federation, for students and graduate students of the Department of Sociology of the Family of Moscow State University, for students of the Institute of Business and Politics of Moscow.
The concept of the dissertation was discussed and supported at the Department of Public Administration and Legal Support of Public Service.
Thesis structure consists of an introduction, two chapters, including five paragraphs, a conclusion, a list of used legislative acts and scientific literature.
Features, concept and essence of public administration in the field of family policy implementation and family protection
Public administration is a complex phenomenon; it has many aspects - legal, political, economic, moral and ethical, organizational, informational and others. According to some scientists, "the interests of both a deeper and more comprehensive knowledge of public administration, and even more so its practical improvement ... require its holistic knowledge"1. They, noting the complex, multidimensional nature of public administration, some scholars at the same time believe that "the core of the subject of the theory of public administration is its legal aspect and, accordingly, regulated ..., mainly by administrative law, managerial relations"
But after all, public administration implies a different-quality impact on the managed object, and it is hardly correct to interpret it within the framework of its purely legal functions. And you need to understand that "the core of the subject of the theory of public administration" is, in essence, a complex interrelationship of different-quality influences of the state and an adequate account of socio-political and economic restrictions. And the effectiveness of state-power decisions depends on the right choice, depending on certain conditions, of an adequate measure and form of influence.
What is meant by "public administration"? According to some scientists, public administration is the activity of all state bodies, including all types of activities: legislative, justice, prosecutorial supervision, etc.1
The interpretation of public administration as the state's powerful influence on the social system is quite widely used in the literature. Such an interpretation of statehood and the imperious nature of management, their real manifestation in the purposeful activity of the state, the entire system of its bodies to ensure socio-economic progress in our country. However, it is necessary to avoid an exaggerated understanding of public administration, which leads to the fact that this type of activity begins to be identified with the activity as a whole. The transfer of a particular system, acting as an object of activity, to a new state is the result of all human activity, first of all, of its type, which is called objective activity. If the product of cognition is knowledge, the product of objective activity is a change in objective reality, then the product of management is orderliness achieved on the basis of knowledge. Governance can be defined as the conscious ordering of the various activities of a social system in order to achieve the goals recognized by that system.
Ordering (or coordinating) the actions being performed or planned can be reduced to either establishing vertical links between them, subordinating one to the interests of the other (subordination or, better, subordination), or establishing horizontal links between them, to such a combination of two or more the point of view of a certain criterion of action, which ensures the achievement of the desired result. But ordering can also be carried out by stimulating the emergence of relatively unidirectional orientations, and so on.
In the literature, when characterizing public administration, attention is drawn to a number of features. In particular, such signs as purposefulness, scientific validity, systematic influence of the state (through the system of its bodies) on social relations and communications, state-imperious nature of management, universality, practicality, social activity, a variety of organizational forms of public administration are distinguished. Undoubtedly, all these features characterize public administration in its broad interpretation. In particular, purposefulness, scientific validity, planned impact on social relations and state-imperious nature reveal the specifics of public administration as a process of implementing state power. Naturally, these features are equally (albeit with certain features of their manifestation) acceptable for characterizing the activities of all state bodies, since they all exercise state power, implement the functions of public administration of society. And it is quite fair that when defining the generalizing concept of a state body in the scientific literature, attention is drawn to such a sign of it as the presence of state power in the body.
The institution of the family as an object of state-legal regulation. Historical and legal aspect
The institution of the family has always been influenced by society, being the object of legal regulation almost from the moment the state was founded. Society already at the earliest stages of its development regulated the relationship between the sexes, parents and children. But before considering the historical aspect of the state-legal regulation of marriage and family relations, it seems necessary to determine its theoretical basis.
The very concept of regulation in law implies a productive, regulatory and organizational impact on social relations carried out with the help of legal means in order to streamline, protect, and develop them in accordance with social needs. It must be taken into account that legal regulation as a specific impact - a very broad concept that characterizes law in action, all directions and forms of influence of law on public life, including the functioning of law as a spiritual factor. But legal regulation, in contrast to the general spiritual ideological impact of law on public life, is inherent in the fact that it is always carried out through a special mechanism inherent only in law, designed to legally guarantee the achievement of the goals that the legislator set when issuing or authorizing legal norms.
The subject of legal regulation is a variety of relations that can be subject to regulatory and organizational influence and in the given socio-political conditions require such influence, carried out with the help of legal norms and all other legal means that form the mechanism of legal regulation. The direct subject of legal regulation is the volitional behavior of participants in social relations, behavior through which only stimulation and coercion can be carried out. The subject of family law regulation is personal and related property relations arising from marriage and belonging to a family.
With regard to family law, the question of whether it is an independent branch is difficult to consider definitively resolved. Russian scientists-familiarists hold different positions on this matter. Some believe that there are no grounds for dissociating family law from civil law, others find that family law has its own subject of regulation, and therefore is an independent branch of law. But in the course of the historical development of the state-legal regulation of marriage and family relations, it has developed in such a way that it occupies a separate niche in the structure of the Russian legal system. And this situation is connected with the specifics of relationships in marriage and family.
The specificity of marriage and family relations lies in the fact that they arise not from ordinary legal facts characteristic of civil legal relations, but from peculiar legal facts, such as marriage and kinship, motherhood and fatherhood, etc. Marriage and family relations are, as a rule, lasting and connect not strangers (as in civil law), but close people, between whom both personal and property relations arise. And besides, mainly personal-legal, and only then property, directly related to them. So, unlike civil rights, marriage and family rights and obligations, as a general rule, are inalienable, i.e. not transferable to others. Moreover, not only personal, but also property rights and obligations are inalienable.
A distinctive feature of legal regulation is that it has its own specific mechanism. It can be defined as a system of legal means that provides an effective legal impact on regulated relations. Rights and obligations are primary and necessary means and become binding when they are associated with state power and its apparatus.
In general, under the methods of legal regulation one should understand those ways of legal influence that are expressed in legal norms, in other elements of the legal system. These are: - permission - giving persons the right to their own active actions - prohibition - imposing on persons the obligation to refrain from committing an action of a certain kind - positive obligation - imposing on persons the obligation to positive and active behavior Legal permissions are the main element of legal regulation that determines a legal means designed to ensure social freedom, the activity of a person, people, their teams, the implementation of real human rights, real democracy and the creative activity of people. Legal permissions are expressed both in laws and by-laws.
Problems of public administration in the field of family policy implementation
Despite the fact that there is a growing understanding in society of the extent of the danger of negative consequences associated with the state of the family, nevertheless, one has to state the fact that there is still no clearly expressed state ideology of family policy in Russia, formulated and fixed accordingly in the legislation. And although various departments and regions make certain attempts to solve certain problems in the field of family protection in the practical activities of government bodies, they are spontaneous in nature, they lack a major state approach.
The managerial activity of the state in the field of the implementation of the state family policy, aimed at protecting and strengthening the family, creating conditions for its normal functioning is extremely inefficient. The measures taken by the state are mainly aimed only at certain categories of families, the so-called socially vulnerable families (large families, young, single-parent families, families with disabled members), trying to ensure their survival, mainly by protecting its individual members, primarily children. But these measures do not give parents the opportunity to ensure the normal existence of all family members themselves, and they also ignore normal families, which are also in an extremely difficult situation and quantitatively significantly exceed socially vulnerable families. The sharp decline in real incomes, the economic stratification of the population led to massive impoverishment of families. Unemployment, including in hidden forms, has a very negative effect on their position. According to the Federal Employment Service, in 1995, in 702 thousand families with minor children, one of the parents was unemployed. At the same time, more than 70 thousand unemployed had three or more children. During the years of reforming the country, only a small part of the families managed to adapt to the ongoing changes and achieve a certain level of well-being, psychological and moral comfort. Most of them are in a state of uncertainty, do not have life strategies, the necessary psychological and professional training to survive in a competitive environment. This leads to an increase in such extremes among children and adolescents:
Social psychologists note an increase in aggressiveness in the family, in relations between husband and wife, parents and children. Against this background, new forms of juvenile delinquency are emerging. Statistical data state a faster growth of offenses in comparison with the adult environment by about 2 times. It is children who join the ranks of organized crime.
Measures to support the family, taken by government bodies, are largely in the nature of "first aid" to socially vulnerable family members, they are not built into the system of promising management activities in relation to the family.
The economic crisis significantly weakens the positive impact of these legal acts.
The problems of poverty are rarely analyzed from the point of view of the global consequences of the mental and physical health of families, their intellectual potential, and moral state. The inaccessibility of adequate treatment and medicines, the deformation of the diet of most families in the coming years can lead to a further increase in mortality and a decrease in life expectancy. The level of culture and the intellectual potential of the family may fall to a critical point.
N.M. Rimashevskaya notes that "demographic reproduction in Russia in recent years is characterized not only by direct depopulation, a decrease in natural population growth, but also by a decrease in its qualitative characteristics across the entire range of indicators"
Ways to improve the activities of government bodies aimed at protecting and strengthening the family
Approved on May 12, 1993 by the decision of the National Council for the preparation and holding of the International Year of the Family in Russia, the concept of the state family policy of the Russian Federation was the first document that determined the basic principles, goals and plan of priority measures for the legislative and executive authorities and management for the development and implementation of the state family policy. Then, promising issues for improving the state family policy were identified in the 1994 report "On the situation of families in the Russian Federation", prepared by the National Council for the preparation and holding of the International Year of the Family in the Russian Federation and the Commission on Women, Family and Demography under the President of the Russian Federation .
But despite the existence of these documents, the reform of public administration in the field of protecting and strengthening the family, regulating marriage and family relations, and implementing family policy was extremely ineffective. But one cannot ignore the fact that the family is called upon to play an exceptional role in the life of society, its stabilization, and the reduction of social tension. By its nature and purpose, the family is an ally of society in solving such important problems as overcoming depopulation, establishing moral principles, developing culture and the economy, family business, and therefore the most important task of public administration in this area is to develop a legal framework, mechanisms for its implementation. , optimization and improvement of management efficiency, which allows to actively use the possibilities of the family as a social institution in solving the complex problems of our society, the main of which, according to G.V. "one
The solution of all these problems is possible only with the close interaction of this institution and society. But in order for this to become possible, it is necessary to develop mechanisms and technologies that make it possible to actively use the potential of the family in solving the complex problems of the development of our society.
In a brief review of family policy and the celebration of the International Year of the Family in the Russian Federation, provided at the 49th session of the UN General Assembly, the role of a democratic state in the development of the family "should be to carry out adequately proclaimed goals of legislative regulation, the distribution of resources located in its disposal, implementation of a policy of economic encouragement of actions aimed at the goals of socio-economic support for the family and women, taken by other participants in the process - entrepreneurs, the public, private individuals"2.
The need to develop and adopt priority areas and principles of state family policy, their implementation, has become obvious. And, finally, the Decree of the President of the Russian Federation of May 14, 1996 No. 712 approved the Main Directions of the State Family Policy.
Along with the adoption of this document, the state administration in the field of family policy implementation received a certain legal basis, on the basis of which the specific and practical management activities of executive authorities should be carried out. But before giving an assessment of the named act of public administration and suggesting a concept of organizing administrative activities aimed at implementing various areas of family policy, it seems necessary to clarify which of the existing concepts of the family the author is a supporter of, because this will determine and explain the content of his conceptual provisions of public administration in the field of protection which family.
Politicians, scientists, government officials, however, like every person, have their own idea of the family and its "ideal", i.e. about that structural-functional type, representing, in his opinion, its optimal variant. In the previous chapter, the author, considering the historical aspect of the state-legal regulation of family relations, noted that the state supported the traditional family in the pre-revolutionary period, and after October revolution set out to destroy it. Then the state focused its efforts on helping families with many children and single parents, practically ignoring its most common type - the nuclear family. Now, when a deep transformation of this institution is taking place, giving rise to a lot of problems detailed in the previous paragraph, it is necessary to determine what should become the main thing for the state in organizing management activities aimed at protecting the family, preserving and social support, and mainly stimulating what type of it will solve the above problems facing society. The point of view on this issue will naturally determine the concept of state family policy.
One of the features of the implementation of family policy is the participation in the process of a sufficient number of executive authorities. Family development includes a wide range of areas: education, healthcare, employment, social protection and support for motherhood, childhood and orphans, prevention of juvenile delinquency. Accordingly, the subjects of state administration are: the Ministry of Labor and Social Protection of the Russian Federation, the Ministry of Education of the Russian Federation, the Ministry of Health of the Russian Federation, law enforcement agencies, the Ministry of Sports of the Russian Federation, the Ministry of Culture of the Russian Federation, the Institute of the Commissioner for the Protection of the Rights of the Child under the President of the Russian Federation, etc. Each department carries out the provision of measures in the field of development of family relations in the appropriate direction.
The government of the Russian Federation should be considered as the main backbone executive body in the field of formation and implementation of the state family policy. Federal ministries and other federal executive bodies are subordinate to the Government and are responsible to it for the fulfillment of assigned tasks.
In accordance with Article 13 of the federal constitutional law "On the Government of the Russian Federation", the Government, within its powers:
Organizes the implementation of the domestic and foreign policy of the Russian Federation;
Carries out regulation in the socio-economic sphere;
Ensures the unity of the system of executive power in the Russian Federation, directs and controls the activities of its bodies;
Forms federal targeted programs and ensures their implementation;
Implements the right of legislative initiative granted to him.
The government is developing mechanisms to address the problems of the family, motherhood, fatherhood and childhood. Figure 4 highlights the main areas of activity of the Government of the Russian Federation in the field of implementation of the state family policy.
Figure 6 - Areas of activity of the Government of the Russian Federation in the implementation of the state family policy
The Government approves Action Plans for the implementation of the Concept of State Family Policy, the Strategy for Education in the Russian Federation. Creates and forms the composition of the Coordinating Council for the implementation of the Concept. The Coordinating Council is a mechanism for managing, coordinating, interdepartmental interaction and monitoring the implementation of the state family policy.
The National Coordinating Council for the Support of Young Talents under the Government ensures the coordination of actions of federal executive authorities and executive authorities of the constituent entities of the Russian Federation aimed at implementing the Concept of a nationwide system for identifying and developing young talents for 2015-2020.
The task of ensuring a unified state approach to solving the problems of protecting the rights and legitimate interests of minors in the Russian Federation is entrusted to the coordinating body - the Government Commission on Juvenile Affairs and the Protection of Their Rights.
Since many ministries and departments are involved in ensuring measures for the formation and implementation of state family policy, we will consider the powers of individual executive authorities in this area.
The Ministry of Labor and Social Protection of the Russian Federation is a federal executive body responsible for the development and implementation of state policy and legal regulation in the field of demography, labor, living standards and incomes, wages, pension provision, employment and unemployment, labor migration, social protection and social services for the population, including social protection of the family, women and children.
In the structure of the Ministry, we note the activities of the Department of Demographic Policy and Social Protection of the Population. The Department is responsible for:
Demographic policy and gender equality;
Social protection of the population;
Guardianship and guardianship in respect of adult incapacitated or not fully capable citizens;
Social support for veterans and their families;
Social services for the population and the provision of social services.
The Department is preparing the State Report on the Situation of Children and Families with Children in the Russian Federation. According to Decree of the Government of the Russian Federation No. 248 dated March 28, 2012, the Report contains objective, systematized information on the situation of children and families with children, trends in its change in order to determine priority areas and directions of activity to solve childhood problems, as well as to develop the necessary measures to ensure the rights of children, their protection and development.
The structure of the report reflects the issues of the socio-economic situation of families with children, the health of women and children, nutrition, education, upbringing and development of children (including children with disabilities, children of migrants), employment of adolescents and parents, prevention of family distress and social orphanhood support for children in difficult situations.
An important direction in the implementation of state family policy is the protection of the health of children and the family as a whole. In this aspect, the Ministry of Health of the Russian Federation is a federal executive body responsible for the development and implementation of state policy and legal regulation in the field of prevention, early detection and treatment of diseases, reduction of maternal and infant mortality, formation of motivation in children and their parents to a healthy lifestyle, takes appropriate measures to organize the provision of children with medicines, specialized medical nutrition products, and medical devices.
Protecting the health of children is a necessary condition for their physical and mental development. In this regard, the Ministry of Health, together with the state authorities of the Russian Federation and the state authorities of the constituent entities of the Federation, creates and develops medical organizations that provide medical care to children, taking into account the provision of favorable conditions for the stay of children, including children with disabilities, and the possibility of staying with their parents and (or) other family members, as well as social infrastructure focused on organized recreation, improvement of children and restoration of their health.
A significant area of state family policy is to support the institution of the family, create conditions for the integrated development of the education system, modernize management and technology, and strengthen the role of the family and education workers. The implementation of this direction is entrusted to the Ministry of Education of the Russian Federation.
By Decree of the President of the Russian Federation of May 15, 2018 No. 215, the Ministry of Education and Science of the Russian Federation was transformed into the Ministry of Education and the Ministry of Science and Higher Education. According to the decree, the Ministry of Education performs the functions of developing and implementing state policy in the field of general education, secondary vocational education, additional education for children and adults, education, guardianship and guardianship of minors, social support and social protection of students.
The state guarantees the right of every child to live and be brought up in a family, the right to parental care, as well as the right and duty of parents to raise their children, be responsible for their development, care for their health, physical, mental, spiritual and moral development. On May 29, 2015, the Government of the Russian Federation approved the "Strategy for the development of education in the Russian Federation for the period until 2025", the purpose of which is to determine the priorities, directions and mechanisms for the necessary changes in the content and organization of educational activities by public and state educational institutions.
Work with talented children and youth should be considered a priority direction of state policy. By orders of the Ministry of Education, a list of Olympiads and other competitive events is approved, as a result of which prizes are awarded to support talented youth. The All-Russian Olympiad for schoolchildren is aimed at identifying and supporting gifted children, covering all subjects of the school curriculum.
The Ministry of Culture of the Russian Federation is involved in the formation of the cultural and educational space of the younger generation. Introducing children to various types of art, developing their creative abilities, promoting professional self-determination are the tasks of the state cultural policy.
In accordance with the Constitution of the Russian Federation, motherhood and childhood are under state protection. The care and upbringing of children is the right and duty of parents. The most urgent problem is the prevention of crimes committed against minors by their parents or other legal representatives. The priority activity of the Ministry of Internal Affairs of the Russian Federation and its territorial bodies is the prevention of family problems, as one of the main factors contributing to a decrease in the level of protection of children.
Thus, public administration in the field of family policy implementation is a special type of managerial activity that arises in the process of implementing state functions aimed at developing the family, family lifestyle, strengthening the family as a social institution, creating optimal conditions for ensuring its vital activity.
The powers of federal state authorities in the field of family support include:
- establishing the foundations of the state family policy in the Russian Federation;
- determination of state minimum social standards of the main indicators of the quality of life of families;
– adoption of federal laws and other regulatory legal acts of the Russian Federation on the regulation and implementation of family support;
– the formation of federal executive bodies that implement state support for families in the Russian Federation;
– development and implementation of federal targeted programs and activities to support families in the Russian Federation.
Achieving the effectiveness of state family policy is impossible without the active cooperation of state authorities and society. The priority areas of interaction are: pooling efforts and resources in achieving national goals, building a culture of civic participation.
It should be noted that since 2005 the issues of supporting families with children have been assigned to the regions. This means that special attention is paid to the institution of the family in the constituent entities of the Russian Federation. As part of the development of the institutional environment in the field of family development as an object of control, relevant bodies have been formed in the regions to develop priority areas for state family policy and organize interaction between executive authorities.
If material support for families, the mechanisms of which are approved at the federal level (payment of allowances, benefits, subsidies), is expected mainly from the state, then the state of the social infrastructure is largely determined by the professionalism of the regional and municipal authorities. Family policy as a component of social policy at the municipal level takes into account the problems of daily life of the family.
The family policy of the municipality is implemented in two directions - internal and external. Internal family policy should be oriented towards all families with children residing in the territory of the municipality and include: 1) a system of alternative social services for families with children that meets the needs of residents; 2) family infrastructure; 3) structures of civic participation of parents for making managerial decisions and coordinating interests related to the life of families with children in the municipality.
The foreign policy of the municipality includes the activities of the municipality to involve in social partnership such civil society institutions as the business community, public organizations, trade unions, church associations, the regional authorities themselves, for the implementation of social projects in the interests of the local community, as well as activities aimed at creating an attractive image of the municipality as social space, friendly to family, parents and children.
Thus, the implementation of the state family policy is, first of all, a multi-subject activity. Federal authorities, authorities of constituent entities and municipalities, non-profit and public organizations participate in the formation and implementation of state family policy.
Literature, regulations and electronic resources on the topic:
1. On the Government of the Russian Federation: federal constitutional law of December 17, 1997 N 2-FKZ adopted by the State. Duma 11.04. 1997: approved by the Federation Council on May 14, 1997 // ATP "ConsultantPlus"
2. On additional measures of state support for families with children: federal law dated December 29, 2006 No. 256-FZ: adopted by the State. Duma 22 Dec. 2006 : OK Federation Council 27 Dec. 2006 / / SPS "Consultant Plus".
3. On the national goals and strategic objectives of the development of the Russian Federation for the period up to 2024: Decree of the President of the Russian Federation of 07.05.2018 N 204// SPS "ConsultantPlus".
4. On approval of the action plan for 2015 - 2018 for the implementation of the first stage of the Concept of State Family Policy in the Russian Federation for the period up to 2025: Decree of the Government of the Russian Federation of 04/09/2015 N 607-r // ATP "ConsultantPlus".
5. Atamanchuk G.V. Theory of public administration. Lecture course. - M. 2014.
6. The State Duma Federal Assembly of the Russian Federation: official site. – Access mode: http://www.duma.gov.ru/
7. Report on the situation of children and families with children in the Russian Federation. [Electronic resource]: Access mode: https://rosmintrud.ru/docs/mintrud/protection/474
8. Ministry of Health of the Russian Federation - official site. – Access mode: https://www.rosminzdrav.ru/ministry
9. Ministry of Sports of the Russian Federation - official site. – Access mode: https://www.minsport.gov.ru/
10. Ministry of Labor and Social Protection of the Russian Federation - official site. – Access mode: https://rosmintrud.ru/ministry
11. Government of the Russian Federation - official site. – Access mode: http://government.ru/
12. Sidorov, V.A. Family policy in the system of state social policy / V.A. Sidorov / / Power. - 2015. - No. 11. – P.83-85.
13. Federation Council of the Federal Assembly of the Russian Federation - official site. – Access mode: http://www.council.gov.ru/
14. Commissioner under the President of the Russian Federation for the rights of the child: official. website. - Access mode: http://www.deti.gov.ru/.
Tasks and questions
Course work
family studies course
"State family policy in Russia and abroad"
Fulfilled:
Checked:
Ryazan 2010
Content
- Introduction
- Chapter 1. Theoretical issues of modern family policy
- 1.1 The concept of family policy in Russia and abroad
- 1.2 Goals and objectives of the state family policy in Russia and abroad
- Chapter 2. Analysis of approaches to family policy in modern world
- 2.1 The main directions of the implementation of the state family policy
- 2.2 Analysis of the socio-economic situation of the family in Russia and abroad
- 2.3 Formation and implementation of state family policy in Russia
- 2.4 Foreign experience of family social protection
- Chapter 3
- Conclusion
- List of sources used
- Applications
1. The Constitution of the Russian Federation. Official text. M.: Publishing and Trade Corporation "Dashkov and CO", 2002. - 40 p.
2. The concept of family policy of the Ryazan region for 2007 - 2015 [electronic resource] Official website of the government of the Ryazan region www.ryazanreg.ru
3. The concept of the implementation of the state family policy in the Sverdlovsk region for the period up to 2015 [Electronic resource] Official website of the government of the Sverdlovsk region www.midural.ru
4. Family Code of the Russian Federation. M.: "OMEGA-L", 2010. - 77p.
5. Decree of the President of the Russian Federation "On the main directions of state family policy" of May 14, 1996 N 712
6. Alekseev S.S. State and Law - M., 2003. 176 p.
7. Artyukhov A.V. State family policy and its features in Russia // Sociological research, 2002, No. 7, P.108-110
8. Darmodekhin S.V. State family policy: problems of scientific development. M., 2005. P.247
9. Darmodekhin S.V. Family and State. - M.: State. Research Institute of Family and Education, 2001.S. 207
10. Egorova N.Yu. The principle of social partnership in family policy // Social policy of the social state. Ed. prof. Saralieva Z.Kh. - Nizhny Novgorod: NISOC Publishing House, 2002. P.279.
11. Karelova G.N. State report "On the situation of children in the Russian Federation, 1996". M., 2004. P.9.
12. Olivier Thevenon. Family policy in developed countries: contrasting models. - Population et sociétés, No. 448, 2008
13. Pyanov A.I. The main conceptual provisions of modern state family policy in the Russian Federation. - Stavropol, 2008. P.236
14. Rabzhaeva M.V. Family policy in Russia in the 20th century: historical and social aspect // Social sciences and modernity. 2004. N2. pp.166-176.
16. Kholostova E.I. Social policy: Proc. allowance. - 2001 - 204p.
17. On the concept of state family policy [electronic resource] http://www.garant.ru/action/interview/anons/242980/
18. 2008 family year [electronic resource] http://www.semya2008.ru/
19. Infant mortality in Russia [electronic resource] http://medportal.ru/mednovosti/news/2009/04/27/babies/
20. Demographic situation in Russia [electronic resource] http://www.demographia.ru/articles_N/index.html? idR=21&idArt=1347
21. Year of the family in Russia [electronic resource] http://family. invur.ru/index. php? id=71
ApplicationsAttachment 1
Distribution of family cells in the Ryazan region according to the All-Russian population census of 2002.
Total family cells | Of these, those with children under 18 years of age | Including | ||||||
with 1 child | with 2 children | with 3 children | with 4 children | with 5 or more children | ||||
Number of family cells | ||||||||
including: married couples without children | ||||||||
Married couples with children | ||||||||
mothers with children | ||||||||
Fathers with children |
Appendix 2
Arrangement of children and adolescents left without parental care
Number of children and adolescents identified and accounted for in the reporting year | Of the total number of children arranged for the year: | |||||||
To orphanages, educational institutions, educational institutions, medical institutions and institutions of social protection of the population and other institutions for full state support | In institutions of primary, secondary and higher vocational training, other educational institutions for full state support | Under guardianship | to a foster family | For adoption | returned to parents | |||
Annex 3
The concept of family policy of the Ryazan region for 2007 - 2015
Government of the Ryazan region.
The concept of family policy of the Ryazan region for 2007 - 2015
The concept of the family policy of the Ryazan region for the period up to 2015 (hereinafter referred to as the Concept) was developed in accordance with the Constitution of the Russian Federation, federal laws and other regulatory legal acts that establish the rights and guarantees of the family. The concept defines a system of views, principles, priority areas in the field of social support, health care, education, upbringing, leisure activities for families with children.
Family policy is formed taking into account the economic, demographic and other objective changes taking place in the life of society. Being an important direction of modern social policy, family policy is a set of targeted measures implemented by federal, regional, municipal executive authorities in the interests of the family institution. The fundamental difference in the essence of the adopted laws, resolutions, decisions, programs is the fact that the family is recognized as one of the main objects of all social policy.
The concept of family policy is a methodological foundation for the implementation of social policy in the field of family support, motherhood and childhood. The main principles on which the family policy is based are:
coordination of activities and determination of the scope of responsibility of various departments and structures in the field of family policy;
a differentiated approach to the implementation of family policy measures, depending on the situation in which the family finds itself;
continuity and stability of state family policy measures;
unity of family policy at the federal, regional and municipal levels, carried out on the basis of partnership between the family and the state;
cooperation with public, charitable and religious organizations, as well as the active participation of the population itself in solving the problems of family policy.
Family policy is a holistic system of economic, legal, social, organizational, medical, psychological, and outreach measures aimed at creating conditions conducive to the most favorable performance of the family's functions, strengthening and developing the institution of the family, reviving family values, and increasing prestige. family lifestyle.
I. Analysis of the current state of the institution of the family and regional specifics of family policy
One of the social institutions that shape the behavior of people in the demographic sphere is the family. According to the All-Russian population census of 2002, 363.7 thousand families were registered in the Ryazan region, in which 968.4 thousand people live, or 78.9% of the total population of the region. The vast majority of families (84%) have no more than three people. Changes in the way of life of the modern family have formed in the public mind the idea of preference not only for a small family, but also for a simple nuclear family, consisting only of a married couple with or without children. Such families are in the vast majority. Their share in rural areas is higher than in urban areas. Less than half (45.3%) of families have minor children in their composition. Moreover, this figure is noticeably higher in urban areas than in rural areas (46.9% and 41.4%, respectively).
Families with one (73.4%) or two (23.4%) children are typical. And only 3.2% of families in the Ryazan region have three or more children. The proportion of families with only one child is much higher in urban areas than in rural areas, while the proportion of families with two, three or more children, on the contrary, is lower.
In the Ryazan region, there are almost 26 thousand families (7% of the total number of families), in which both spouses are under 30 years old, 73.2 thousand people live in them. Every third young family does not have children. Moreover, in urban settlements, which account for 77% of families where both spouses are under 30 years old, this figure was 32.2%, in rural areas - 19.7%.
The vast majority (84.5%) of young couples with children (18.3 thousand) have one child, 14.4% - two children, 0.9% - three children, 0.1% - four children. The indicators differ markedly in urban and rural areas: the proportion of couples with two, three or more children in rural areas is higher than in urban areas.
Single-parent families consisting of a mother or father with children (including single-parent families with one of the parents of the mother or father, as well as other relatives) make up 23.7%, or every fourth family. In nine cases out of every ten, these are maternal families without a father.
More than half (54.9%) of incomplete families have children under the age of 18. In total, 45.6 thousand children and adolescents are brought up in families with one parent (almost every fifth child is brought up without one of the parents), or 19.7% of all children and adolescents under 18 years of age. Incomplete families with one minor child make up 82.6%, with two children - 15.0%, with three or more children - 2.4%.
Growing up in an incomplete family, as a rule, implies a lack of parental attention and communication between children and parents. Families headed by a woman face significant material problems. The increased risk of poverty for children in incomplete families is also associated with the insufficient size and often irregularity of alimony payments, which are at least partially designed to compensate for the decline in family income after the breakdown of marriage. The material support of children is increasingly dependent on the goodwill of fathers and state institutions, which increases the uncertainty and instability of the standard of living of families of divorced women with children.
The main problems facing the Russian family are still of a material nature. In the Ryazan Region in 2006 (according to preliminary data) a little over 230,000 people, or a fifth of the population (19.6%), had average per capita cash incomes below the subsistence minimum or the poverty line. In extreme poverty, i.e. with average per capita incomes two or more times lower than the subsistence level, there were 5.3% of the population.
The level of well-being of families is directly related to the number of children in them. Low incomes and the lack of prospects for their increase, combined with a high dependency burden, have a negative impact on the economic situation of families. Even with both parents working and receiving wages at the average level for the region, families with children are more likely than others to fall below the poverty line.
As of January 1, 2007, in the Ryazan region, 4.7 thousand large families were registered with the social protection authorities, in which 15.9 thousand children are being brought up, 4.4 thousand families with children with disabilities (4.5 thousand children) , 14.5 thousand single-parent families (18.2 thousand children) and 9.9 thousand families of single mothers (11.2 thousand children).
Of the total number of families with many children, 1,780 families with three children, 330 families with four children, and 155 families with five or more children have incomes below the subsistence level. In the region in 2005, the average per capita cash income in a family with 1 child was 2543 rubles, 2 children - 2353 rubles, 3 or more children - 1519 rubles. One of the important parameters of the well-being of families is the provision of housing.
To ensure comfortable living of the population, the number of living rooms in the premises should exceed the number of family members. Under such conditions, about 112 thousand families (24.5%) live in the Ryazan region, a little more than 150 thousand families (33.4%) have apartments with the number of rooms equal to the number of family members, and about 190 thousand families ( 41.6%) the number of residents is greater than the number of rooms available in the dwelling. Notable changes in age composition of the population, the intensification of the process of demographic aging, changes in the social and economic situation in the country have influenced the fact that almost every fourth family consisting of two or more people is not employed in the economy, and every fifth has dependents. Moreover, in urban settlements there are 20.1% of such families, and in the countryside - 38.5%. The predominance of unemployed rural families can be explained by a significant reduction in the level of employment of the rural population.
The current situation with the birth rate has developed under the influence of the dynamics of its development in the past. The measures taken by the state aimed at increasing the birth rate had practically no effect on changing the essence of the birth process, but changed the calendar of births and led to a reduction in the intervals between the births of children of the next order. It is this reason, along with some others, that has led to a decrease in the number of births since the late 1980s.
Since 1989, fewer people are born in the Ryazan region than die. Since 1991, there has been a numerical reduction in the population of the region (depopulation), because the number of deaths exceeds the number of births by 1.4 times.
In recent years (since 2001), a low but steady growth in the birth rate has taken on a trend. However, it should be noted that the Ryazan region is one of the four subjects of the Central Federal District with the lowest birth rate - 8.5 people per 1000 population (lower only in the Tula region - 8.0, in the Tambov region - 8.2 and in the Voronezh region - 8.3). The birth rate in the region is noticeably lower than the all-Russian indicator (10.4) and the average for the Central Federal District (9.0).
The birth rate is accompanied by "aging" of the age profile of the birth rate. Since 1992, there has been a decrease in the contribution to the final birth rate of the group of mothers aged 15-19 years and the age group of 20-24 years. Over the last decade of the last century, the decline was two-fold: from 58.5 to 26.7 live births per 1,000 women aged 15-19 in 2000 (in subsequent years, the indicator practically stabilized at this level). The contribution of the older groups of women to the birth rate increases in absolute and relative terms. Accordingly, the average age of women at the birth of their first child and the average age of motherhood in general are increasing. This reduces the likelihood of having a second child and subsequent children in the family, and also worsens the health prognosis of the children being born.
The reproductive plans of families are currently focused on the birth of one, less often two children. Over the past ten years, the birth rate in the region (an indicator of the average number of children born to one woman during the reproductive period) has changed unevenly. It is important to note that the current birth rate in the region of 1.211 children (1.103 for urban women, 1.595 for rural women) is 1.8 times lower than the level of simple replacement of generations. This indicator is lower than the all-Russian indicator (1.34) and practically at the level of the average for the Central Federal District (1.22).
The reproductive health of women and their children is adversely affected by abortion, which remains the most common method of terminating a pregnancy. In 2005, the number of officially registered abortions in health care institutions was 1.2 times higher than the number of births. At the same time, over the past fifteen years, a two-fold decrease in the overall abortion rate (the number of abortions per 1,000 women aged 15-49 years) has been achieved - from 88.9 in 1991 to 39.6 in 2005, respectively. This indicates the ongoing restructuring in the field of family planning. The transition from abortion to effective means and methods of contraception has become massive and hardly reversible. Especially clearly the displacement of abortions by contraception is demonstrated by the youngest women, the decline in the birth rate at the age of 15-19 is accompanied not by an increase in the intensity of the production of artificial abortions, but, on the contrary, by a decrease.
The attitude of the population towards marriage has a certain influence on the situation with the birth rate. During the intercensal period (1989-2002), the attitude of Ryazanians towards marriage has changed: during this time, the number of people who have never been married increased by 12.3%, the number of people who are married decreased by 12.9%. A favorable but unstable trend since 1999 (in 2004 - a decrease of 11%) is a slight increase in the number of marriages. By 2006, the number of marriages per 1,000 population compared with 1990 had decreased from 8.4 to 7.2. At present, the interdependence of marital and reproductive behavior has become much more complicated. For example, if before the registration of marriage, as a rule, preceded the conception and birth of a child, now it often follows them. The relationship between the number of marriages and births is weakening and is not functional, due to the following factors: - an increase in the proportion of remarriages in the total number of marriages, in remarriages the probability of having a child decreases, and even more so immediately after marriage; - the emerging trend of planning the birth of the first child in young couples; - increase in the proportion of children born out of a registered marriage.
46% of children born out of wedlock are registered upon a joint application of the parents, i.e. the birth of an illegitimate child is in many respects conscious motherhood, with the refusal to register a marriage for both men and women. All this indicates significant shifts in the process of family formation in modern Russia. In other words, this reflects the transformation of the institution of the family - the spread of legally unformed unions, and not births to single mothers.
A feature of modern marriage is its instability. The proportion of divorced women in the marriage structure of the population increased from 6.9% in 1989 to to 9.9% in 2002, for whom remarriage is very difficult due to the disproportion of the population by sex and age composition.
There are approximately three divorces for every five marriages in the region. Every year, as a result of divorces, 3.7 thousand minor children are left without one of their parents (data of current statistics for 2006).
The social consequences of divorce are diverse: from an increase in the number of single-parent families to the spread of such a social phenomenon as loneliness. But the most serious consequence of divorces is that the reproductive needs of women are unfulfilled, which negatively affects the reproduction of the population. The main problem in Russia is social orphanhood, that is, the orphanhood of children with living parents. Most orphanage inmates have parents who, for one reason or another, are not involved in their upbringing (alcoholics, prisoners and persons deprived of parental rights). In 2006, 793 children were found to be left without parental care and in need of state assistance (in 1990 - 285, in 1995 - 671). At the end of 2006, educational authorities registered 4.5 thousand orphans and children left without parental care, of which 3.0 thousand people were under guardianship or were adopted. There are approximately 1.6 thousand pupils in boarding schools. Children transferred to state care are more likely to face the risk of poverty, the problem of maladaptation in society in the future. These children are not socially protected, so one of the priorities of family policy should be the development of family forms of placement of orphans.
The development of demographic processes is closely connected with the state of the institution of the family. The structure of the family is changing, in the process of its formation and functioning, such trends as a decrease in registered marriages, a high level of divorces, a decrease in the birth rate, and an increase in the proportion of out-of-wedlock births are manifested, which indirectly indicates a wider spread of forms of matrimony other than the traditional model of registered marriage.
The main goal and objectives of the family policy of the Ryazan region.
The purpose of family policy is to strengthen and develop the social institution of the family, the revival of family values and family lifestyle, the creation and provision of conditions for the best possible performance by the family of its basic functions.
The implementation of the family policy is aimed at solving the following urgent tasks:
creation of conditions conducive to the formation of reproductive behavior of married couples for the conscious birth of two or more children;
comprehensive strengthening of the institution of the family as the most rational form of life of the individual and its normal socialization;
maximum use of the labor and creative potential of the family in the development of society;
improving the system of social guarantees aimed at improving the welfare and stability of families with children;
development of a system of institutions to support families and children in the Ryazan region;
promotion of family education, rehabilitation and subsequent integration into society of children with disabilities;
providing a young family with opportunities for its stable functioning and full performance of its functions;
creation of favorable conditions for the birth and upbringing of healthy children, the protection of motherhood and childhood;
providing conditions for the growth of the educational, spiritual and moral potential of the family, preventing domestic violence;
increasing the responsibility of parents for creating conditions for the life support, upbringing, education and development of children;
prevention of family troubles and social orphanhood, creation of conditions for the realization of the child's right to be raised in a family;
increasing the educational potential of the family as the main institution of socialization by forming in children, adolescents and young people an orientation towards a complete family and the birth of two or more children;
the formation of a positive "pro-family" public opinion, increasing the prestige of a large and socially prosperous family in society;
improving the training of professional personnel to work with families.
Priority directions for the implementation of the family policy of the Ryazan region.
Creating conditions for the economic independence of the family, improving the material conditions for the life of the family, supporting families in difficult life situations:
increasing the degree of affordability of housing for families with young children, including the introduction of mortgages with deferred (reduced) payments, the provision of the main part of state subsidies for the birth of a child, the expansion of housing construction and social infrastructure facilities, taking into account the needs of large families;
creation of conditions for overcoming trends in income decline and stabilizing the financial situation of families, reducing poverty and increasing assistance to disabled family members;
financial support for pregnant women, families with disabled children, single-parent, large and low-income families;
assistance in the development of small family businesses;
creating favorable conditions for employees with children to combine work with family responsibilities;
economic support for the development of self-employment, family business and farming;
creation of conditions for the development of highly skilled home-based work;
ensuring state guarantees of employment of able-bodied family members, including on a part-time (weekly) basis, for adolescents (from 14 to 18 years old) in their free time, as well as women with minor children, development of programs for employment and employment of adolescents and youth;
strengthening employment guarantees in the field of social labor for families in need of increased social protection (families of single parents and large families, disabled people, pensioners, etc.); stimulating the creation of special jobs for them, providing tax or other benefits to enterprises using their labor;
providing conditions for advanced training or retraining of female workers who have a break in their work activity, including when returning from maternity leave and childcare, for their speedy professional rehabilitation.
II. Health protection of children and parents:
strengthening the preventive focus of medical care, ensuring accessibility and improving the quality of medical care to the population;
strengthening the health of children and adolescents, primarily by improving preventive measures to reduce child mortality from manageable causes;
creation of conditions for the organization of family recreation, rehabilitation of children and adolescents;
improvement of medical genetic assistance to the population, the introduction of modern technologies for the early diagnosis of congenital malformations of the fetus, hereditary and other diseases;
development and implementation of modern technologies aimed at strengthening the reproductive health of the population;
development of rehabilitation centers for children with disabilities.
Assistance to the family in the field of upbringing and education of children, prevention of family troubles:
improvement of preventive and rehabilitation work with families, implementation of permanent patronage of problem and crisis families, development of support services for foster families;
support for children who, due to life circumstances, found themselves in difficult conditions of existence, the eradication of all forms of exploitation of children, the prevention of domestic violence;
providing minors with services for vocational guidance and social adaptation in the labor market;
preservation and development of the network of preschool educational institutions;
development of a system of additional education, creation of conditions for the spiritual and moral development of children, the development of cultural values;
creation of conditions for the sustainable functioning of the system of organizing leisure activities for families and children;
strengthening and improvement of spiritual and moral education of children.
Development of a system of social and psychological and pedagogical assistance to the family:
promotion of inter-agency cooperation of institutions in order to best serve the family;
support for civil initiative and interaction with non-governmental organizations conducting social work with families, children, adolescents and the elderly;
formation on the territory of the region of a network of social service institutions for families, providing them with legal, medical, social, psychological support and social organization;
development and support of family forms of placement of orphans.
IV. Information support for the implementation of the Concept
Information support for the implementation of the Family Policy Concept involves:
use of state statistics data, the results of the upcoming All-Russian population census in order to provide the society with reliable data on the situation of Ryazan families, problems and ways to solve them;
regular reflection of statistical and sociological information about the situation of Ryazan families in the media, scientific journals, in special literature;
raising the level of awareness of the population about the institutions and the range of services provided to families;
attraction of print and electronic media to form "pro-family" public opinion, promote family values, family lifestyle, family forms of raising children, positive experience in the formation of young families, responsible motherhood and fatherhood, large families. At the same time, the media need not only to bring up problems that arise in families for discussion, but also to recommend optimal behavior strategies for resolving them, to promote the achievements of successful, prosperous families;
organization of a targeted information campaign designed to form a civic position regarding the need to increase the birth rate, the value of children and the status of parenthood, the transition from a small family to a medium-sized family, reorientation of the value system to a stable full family with several children, promotion of a healthy lifestyle;
placement of information in the print media, preparation of stories, reports, speeches by responsible persons on regional television and radio to cover the implementation of the Concept, form public opinion and the image of specialists working with the family;
conducting social actions among the youth audience aimed at promoting family values;
production of presentation products to popularize the priority areas of the Concept.
Implementation mechanism of the Concept.
Implementation of the Concept involves:
improvement of legislative support for regional family policy and protection of children's rights;
concentration of financial and material resources allocated for the implementation of the priority provisions of the Concept, taking into account the use of funds from budgets of various levels and attraction of additional extra-budgetary revenues;
constant purposeful activity of state structures aimed at preserving and strengthening the family, improving interdepartmental interaction, creating and developing structural units dealing with issues of social policy in relation to the family;
development of a network of social service institutions, opening and operation of effective comprehensive centers for psychological, pedagogical and emergency psychological assistance to families, schools for foster parents, support services for foster families;
development and implementation of regional targeted programs, action plans aimed at solving problems in the field of family policy, their annual adjustment;
training, retraining and advanced training of specialists working with families;
interaction with public, religious and charitable organizations in solving family problems;
formation of public opinion and support of civil initiatives aimed at the implementation of family policy.
Expected results of the implementation of the family policy concept.
The new quality of family policy involves granting the family a full-fledged social and legal status; active functioning of the family as a social community in the system of legal relations; inclusion of family policy functions in the system of activities of authorities and administration. As a result, it is possible to predict real changes in the system of social relations "family - state".
The main criteria for the success of the implementation of the concept of family policy in the Ryazan region will be:
improvement of the demographic situation in the Ryazan region;
increase in the number of families with two or more children;
an increase in the number of registered marriages and a decrease in the number of divorces;
increasing the prestige of the family and the value of family relations in society;
reducing the number of non-working parents;
development of a system of social guarantees aimed at improving the well-being of families with children;
every possible stimulation of a young family in order to fulfill the reproductive function;
building a developed network of institutions to support families and children in the Ryazan region;
creation of a system for the rehabilitation of children with disabilities;
improvement of the system of protection of motherhood and childhood;
development of rural territories, improvement of the quality of life in the countryside;
reduction in the number of orphans brought up in boarding schools.
Both state administration and local self-government are carried out on a permanent and reimbursable basis, but the first - on behalf of the state and at the expense of the federal budget or the budget of a constituent entity of the Federation, the second - on behalf of the relevant municipal body and at the expense of the local budget.
General features: subordination, continuity, diligence and management, the method of power and subordination in relations with the objects of management, forms of expression of managerial actions - resolutions, orders, orders. The most important difference between state and municipal government is that local governments are not included in the system of state authorities (Article 12 of the Constitution of the Russian Federation).
Government
Federal level of governmentLevel of the subject of the Federation
municipal authority
Rice. 2 Levels of state and public authority
Public administration system- an ordered set of interacting: (1) public administration institutions (some of which are represented by executive authorities), (2) professional communities of employees of the administrative apparatus of the public service, carrying out in special forms and conditions (3) professional activities - public service, the content of which are ( 4) the processes of implementing the functions of public administration, entering into (5) relations and connections of management, using (6) special methods, techniques and means (technologies) of management, having a different nature (political, economic, legal, cultural), and combined a special way of communication - the organizational structure of public administration.
That. we singled out six subsystems of public administration(highlighted in numbers in the definition)
Test questions:
1. What is public administration?
2. What are the main problems and tasks of public administration science?
3. What are the features of public administration as a type of activity, its functions and methods?
4. What is the public administration system and what main subsystems does it include?
Topic 2: "Development of a system of knowledge about public administration"
Target settings for studying the topic:
In this section, we will trace the development of theoretical and methodological knowledge about state and local government since the emergence of this branch of knowledge in the ancient world until the beginning of the twentieth century. We will establish the features of interpretations of the theory and practice of public administration by various schools and identify the most important achievements of each of them.
Basic concepts and terms: cameralism, "the science of the police".
Throughout the history of mankind, a huge amount of theoretical and practical material has accumulated regarding the study of the sphere of public administration. The evolution of views on the institution of the state and its role in the life of society can be divided into several blocks:
1 Block:
Covers a long period from Ancient times to the beginning of the 17th century. There are 2 stages of this block:
Stage 1 . Main names (Ancient Chinese philosophers - Mencius and Confucius, ancient Indian philosophers, ancient Greek thinkers - Aristotle, Plato, Polybius)
There is no state administration as an institution regulated by law. Subject-object relations in the public administration system are built on the basis of customs, traditions, and rituals. Actually, state-administrative activity is reduced to collecting taxes, maintaining law and order, beautifying cities, smoothing out conflicts between social groups, etc. The idea of the general benefit and the role of state-administrative activity in it is actively developing.
Aristotle for the first time, the idea was put forward to prevent the concentration of power in one hand and its transfer to the "middle class", which should prevail in society over the "extreme elements", later this idea will be adopted by Renaissance thinkers.
With the development of the polis system, unwritten customs are being replaced by a law that is secular in nature and expressed in writing, without religious overtones. Codifications of legal customs appear (in Athens in the 7th century BC - “Dragon Laws”, in Rome - “Laws of the XII Tables”). In the 7th century BC. the reforms of Solon and Cleisthenes laid down the procedure for the adoption of laws by the people's assembly.
Plato is the author of the first theoretical work in the field of public administration - "The State", in which he tried to formulate the principles of the construction and functioning of states, based on the polis system of Ancient Greece.
In antiquity, two basic conditions for the functioning of social systems, in particular, the state, arise - the hierarchy of construction and the replacement of the power elite.
Han Confucianism– Confucius put forward the ideal of a state system in which, in the presence of a sacredly ascended, but in practice inactive ruler, the real power belongs to the ju, combining the properties of philosophers, scientists and officials. There is a theoretical interpretation of both state and divine ("heavenly") power in family-related categories; “the state is one family”, the sovereign is the Son of Heaven and at the same time “the father and mother of the people”. Therefore, "filial piety" (xiao) in the canonical treatise Xiao ching was elevated to the rank of "root of grace/virtue".
Stage 2 . Middle Ages - beginning of the 17th century. (main names: St. Augustine, Thomas Aquinas, Nicola Machiavelli, J. Locke, C. Montesquieu). An idea is being formed about the state as a legal institution that performs managerial and regulatory-protective functions.
In the Middle Ages, the leading role in the life of society belongs to the Catholic Church, one of the most important tasks of which was the theoretical substantiation of the priority of church power over secular. According to Thomas Aquinas, the legislative power as the original power should belong to the people, which is the parish of the church. The kingdom of the people should not serve the king, but on the contrary, the king should serve the people, the Catholic Church is the highest and most sacred institution in society. In addition to Aquinas, other representatives of medieval scholasticism (Egidius Filesky, Jean de Wieterck, Manegold) used this idea during the struggle of the church against royal power. This struggle led to the first major separation of powers between political and religious.
AT late middle ages, during the formation of absolutism, the sphere of penetration of state power is expanding, which leads to increased specialization of state activity, differentiation of the functions of power, complication of the forms and methods of its implementation. This is reflected in the writings of the thinkers of that time. Thus, some of them (Marsilius of Padua, Nicholas of Cusa) substantiate the need for a separation of powers between the legislative and executive branches. Considering the people as the source of all state power, they call it the supreme legislator, who creates a government body to manage the country. It should be noted that these ideas have not yet resulted in a systematically developed doctrine of the separation of powers, but, nevertheless, were a significant contribution to its formation.