State family policy. Activities of Executive Authorities in the Formation and Implementation of the State Family Policy Institute of Social Work
Democratic changes in our country are enshrined in the fundamental law - the Constitution of the Russian Federation, adopted in 1993. Art. 1 of the Constitution of the Russian Federation, a person, his rights and freedoms are proclaimed the highest value, and "recognition, observance and protection of the rights and freedoms of man and citizen is the duty of the state" (Article 2). The Constitution of the Russian Federation plays a decisive role in the processes of social and political transformation of Russia.
Until 2000, the state's concern for a "decent life and free development of every person" in political practice was reduced to the gradual curtailment of public funds for consumption and financing of social sectors without appropriate compensation in wages; irregular payment of wages and pensions, which often do not provide a living wage, and benefits for the poorest. The processes of reforming the social sphere, its transfer to market mechanisms of management, and the formation of new distribution relations adequate to a market economy are evident.
In the process of socio-political transformation of Russia, the formation of new political approaches and the corresponding legislative framework for state family policy was begun, which basically meets the principles of a democratic federal legal social state proclaimed by the new Constitution Russian Federation.
The new concept of state family policy is based on the most important international legal documents of the United Nations, the International Labor Organization, and the European Social Charter.
The Constitution of the Russian Federation proclaims that in Russia the rights and freedoms of man and citizen are recognized and guaranteed in accordance with the generally recognized principles and norms of international law. “Motherhood and childhood, the family are under the protection of the state” (Article 38). “Everyone is guaranteed social security by age, in case of illness, disability, loss of a breadwinner, for the upbringing of children and in other cases established by law” (Article 39). The Constitution of the Russian Federation reflects the ideas of gender equality, which are so important in family relations: “A man and a woman have equal rights and freedoms and equal opportunities for their implementation” (Article 19).
In accordance with the new Constitution, several hundred laws of the Russian Federation, decrees of the President of the Russian Federation, decrees of the Government of the Russian Federation, regulations of federal ministries and departments, and regulations of the subjects of the Russian Federation that ensure the rights of families and children in the Russian Federation have been adopted. These regulatory and legal documents, both general and special, contain specific rules that guarantee the observance of the rights and interests of the family.
In accordance with the Constitution of the Russian Federation, the Family Code of the Russian Federation formulates the basic principles of family and marriage legislation, the limits of legislative federal competence and the competence of subjects of the Russian Federation in this area. The conditions and procedure for entering into a marriage and its termination or invalidation, personal property and non-property relations between family members and other relatives, the procedure and forms for placing children left without parental care in a family are determined.
The Family Code of the Russian Federation once again confirmed the traditional family values - the voluntary nature of marriage based on mutual trust, love, support, monogamy, equality of rights in the family. The priority of family upbringing of children and the primary provision of their rights and freedoms are also legislatively fixed.
First of all, the code ensures the primacy of the rights and interests of the individual in the family - the main democratic value. In accordance with this, the divorce procedure has been significantly simplified in the event of an obvious family breakdown, the mutual consent of the spouses and in the absence of minor children. In this case, the dissolution of the marriage is carried out not through the court, but in the registry office. In the presence of minor children and the mutual consent of the spouses, the dissolution of the marriage is carried out through the court without clarifying the motives for the divorce. This procedure for dissolution of marriage ensures respect for the individual, for the confidentiality of personal life.
However, in any case, the court is obliged to protect the interests of children, the procedure for their further upbringing and maintenance. Prior to the adoption of the code, the protection of the rights of children did not appear as a special task in the legislation on marriage and the family. Now the child has the right to express his opinion on all issues relating to his life, independently apply for the protection of his rights and interests, including in court.
For the first time, the code specifies the basis for legal protection against domestic violence. The introduction of this rule is a legislative response to the increase in cases of violence in the family.
Also, for the first time, the institution of a foster family was legislatively fixed, the institution of adoption was improved, the priority of family upbringing of children was legislatively fixed, its forms were regulated in detail: adoption, guardianship and guardianship, foster family (which did not exist before).
For the first time, the Code provides for legal norms on the conclusion of a marriage agreement (contract), according to which spouses have the right to change the statutory regime of joint ownership and establish their own regime of shared or joint ownership of all the property of the spouses or its separate types or the property of each spouse, which is more meets the realities of market relations and the institution of private property. Through a marriage contract, it is possible to regulate property relations without concluding a legal marriage (being in a so-called civil marriage), which has become a common phenomenon in Russia.
A more flexible system for determining the amount of alimony has been established. The court is given the opportunity, taking into account noteworthy circumstances, to reduce or increase the amount of alimony established by law. It provides for the possibility of foreclosure on the property of the payer and the conclusion of an agreement on the amount, conditions and procedure for paying alimony, as well as property liability for late payment.
The Family Code of the Russian Federation laid the foundations for the formation of the legal basis for a new state family policy based on the concept of human rights and freedoms, gender equality and preferential upbringing of a child in a family.
The federal law “On State Benefits for Citizens with Children”, which came into force on May 19, 1995, for the first time brought together and streamlined at the federal law level all the numerous types of state benefits and compensations for children and benefits in connection with the birth and upbringing of children, previously regulated by various regulatory documents (decrees, government resolutions, subordinate acts). This made it possible to significantly simplify and unify the legislation, making it more understandable for the population and executive authorities.
No less important in the legal support of state family policy and the protection of children's rights are the relevant articles of the Civil Code of the Russian Federation, the Labor Code of the Russian Federation and the Housing Code of the Russian Federation, the Criminal Code of the Russian Federation, the Penitentiary Code of the Russian Federation. The Fundamentals of the legislation of the Russian Federation on the protection of the health of citizens, the Fundamentals of the legislation of the Russian Federation on labor protection, the laws of the Russian Federation "On refugees", "On forced migrants", "On state guarantees and compensations for persons working and living in the regions of the Far North and equated to him areas”, “About social protection Disabled Persons in the Russian Federation”, “On the State Support of Youth and Children’s Public Associations”, “On the Fundamentals of Social Services for the Population of the Russian Federation”, “On the Development of the State System of Prevention and Juvenile Delinquency”. There are also federal laws “On Education”, “On Protection of the Health of Citizens”, “On Social Insurance”, federal laws “On Acts of Civil Status”, “On Freedom of Conscience and Religious Associations”, “On Public Associations”, “On the Living Wage in the Russian Federation”, “On the basics of social services for the population in the Russian Federation” and many others.
An important stimulus for the formation of new legislation in the field of family policy was the movement for equal rights and opportunities for men and women. A significant role in promoting this new gender ideology for Russia belonged to the faction of the State Duma of the Russian Federation "Women of Russia", the State Duma Committee on Women, Family and Youth Affairs, as well as the Commission on Women, Family and Demography under the President of the Russian Federation (1993-2000 gg.). In particular, a lot of work, which resulted in the adoption of appropriate amendments and additions to the Labor Code, was carried out for the ratification of ILO Convention 156 "Convention on Equal Treatment and Equal Opportunities for Men and Women Workers: Workers with Family Responsibilities" and ILO Recommendation 165 on this conventions.
This Convention and Recommendation establishes the rights of parents with children to non-discrimination in preparation for, access to, participation in or advancement in economic activity and the creation of legal conditions for the harmonious reconciliation of professional and family responsibilities. It is recommended that workers with family responsibilities be given the right to vocational training and job choice, take into account their needs in the field of working conditions and social security, develop or promote institutions and services for the care of children and family assistance, provide paid study holidays, if possible, after return to work. In accordance with this, additions were made to the Labor Code of the Russian Federation, according to which benefits for working women with children were extended to working men with children.
Thus, the fundamental rights of the family, spouses and children to life, protection of honor and dignity, personal integrity, housing, education, freedom of movement, normal conditions and wages, social security and social services, health protection and medical care, access to cultural values.
It should be noted that the main priority in the development of the legal framework of the state family policy of the last decade was the protection of the rights and interests of children.
At the same time, the legislative formalization of the concept of state family policy remained incomplete. The essence, goals, principles and main directions of the state family policy are enshrined not by law, but by Decree of the President of the Russian Federation of May 14, 1996 No. 712 “On the main directions of state family policy”. This decree is based on the concept of universal human values and a social legal state. It has a declarative character, since the specific norms of state support for families, established in most of the adopted federal laws, do not fully ensure the implementation of the goals and principles of family policy set forth in the decree.
Russian political practice in the 1990s. developed in the direction of a gradual abandonment of the infrastructure of the socialization of children that developed in the Soviet era and specific measures to support families of the Soviet period and the transition to the protection of the most needy families. In fact, in the 1990s In Russia, contradictions arose and deepened between the goals and principles of state family policy formulated in legislative acts and law enforcement practice in this area.
The abolition of compulsory secondary general education and the commercialization of vocational education played a negative role. After graduating from the 9th grade, many 15-year-olds do not work or study. Comprehensive school ceased to be responsible for the universality of education. The number of children who have never studied is on the rise. Children are pushed out into the street.
Since the 1990s the number of single-parent families is growing rapidly, resulting from the death of a parent, divorce or the birth of children out of wedlock. Extramarital births increased in Russia from 14.6% in 1990 to 28% in 2000. The number of divorces over the same period increased to 628 thousand in 2000. The number of people who died at working age increased in 1990 by 1, 5 times, which determined the growth of incomplete families. Today every seventh child is brought up in an incomplete family, which has much less opportunities for material support and socialization of children.
There is an increase in the number of people with disabilities and the number of families with disabilities, which have significantly fewer opportunities for the socialization of children. In 2000, there were about 10 million disabled people in Russia, including 592,000 disabled children.
The growth of family distress is to a decisive extent associated with a decrease in material incomes of families, an increase in income differentiation, while increasing payment for and reducing the availability of social services for families.
The educational potential of families has weakened, as evidenced by the increase in the number of children who have suffered from parental cruelty, psychological, physical and sexual violence. Children who remain in the family for a long time without supervision and food are placed in hospitals. The number of disadvantaged children is replenished by families where parents have lost confidence in the future and in their ability to feed and clothe their children, to educate them. Because of drunkenness, drug addiction, an immoral lifestyle, refusal to support children, the state is forced to deprive parents of their parental rights and transfer children to guardian and foster families, to state boarding schools.
In terms of the development of state family policy, a full account and improvement of all dysfunctional families is required: employment of parents, treatment of alcoholism, assistance in normalizing family relations, in solving legal, medical, housing and other problems, as well as ensuring constant patronage of problem and crisis families .
To identify crisis families and work with them, joint efforts of all authorities and administrations, all institutions and sectors of the social sphere in the territory (commissions and inspections for minors, educational institutions, health care, culture, physical culture and sports, employment, housing and public utilities, internal affairs bodies, prosecutor's office, guardianship and guardianship authorities, etc.). This task cannot be solved without the participation of the families themselves, public organizations, religious denominations, scientific institutions, volunteers, industrialists and entrepreneurs. An important role in this process belongs to qualified social workers.
In concrete work, it must be taken into account that not all families are amenable to rehabilitation. Therefore, the development of alternative forms of family education of children is so important: adoption, guardianship and guardianship, foster families, family groups.
The elimination of homelessness and the prevention of neglect require an integrated approach to the implementation of the state policy to support the family and childhood, changing its priorities.
The main condition for the success of the state family policy is the reform of all social policy and, first of all, distribution relations. Discussions about this have not stopped among politicians and scientists since the 1990s, but practical steps in this direction are clearly not enough.
Speaking about the evolution of old forms of state family policy in the 1990s. One cannot fail to note the positive impact on the situation of families of a new form of direct support for families - social services for families. This is a new form of state family policy for Russia. It is represented by multidisciplinary territorial centers for social assistance to families and children, social hotels and shelters, crisis centers, emergency social assistance centers (helplines), rehabilitation centers for children and adolescents with disabilities and deviant behavior, family planning centers, guardianship and guardianship centers and others. social institutions. At the same time, the network of such institutions needs to develop and improve the legal framework, improve funding and staffing, and strengthen the material and technical base.
The main problem of the current state of direct forms of state support for families with children is that the norms of social payments for children and families with children established by law do not cover all families in need, do not have a significant impact on improving the situation of children in the family, and are insufficient to ensure a full-fledged maintenance and upbringing of children in preschool institutions, schools, state residential institutions, educational colonies.
Organizational, financial, informational, propaganda and other mechanisms for the implementation of family policy need to be reformed.
Over the past decade, there have been no positive changes in the system of public administration family policy. Since January 1994, a special Committee on Women, Family and Youth Affairs has been operating in the highest legislative body - the State Duma of the Federal Assembly, and in the Federation Council, along with many other problems, the Committee on Social Policy deals with family policy issues. There are no special state bodies at the level of the Government of the Russian Federation. Formed in 1990, the Committee for Family Affairs and population policy under the Council of Ministers of the RSFSR, it was soon transferred to the Ministry of Social Protection of Russia and lost its status. Until now, all coordinating functions in the field of state family policy, its conceptual and organizational support at the level of federal executive bodies have been entrusted to the Ministry of Labor of Russia (after its merger with the Ministry of Social Protection of Russia). Certain issues of family policy are dealt with by the Ministry of Health of Russia, the Ministry of Education of Russia, the Ministry of Justice of Russia, the Ministry of Foreign Affairs of Russia, the Ministry of Finance of Russia, the Ministry of Economic Development of Russia, the Ministry of Sports of Russia, the State Statistics Committee of Russia, and other federal ministries and departments of a social orientation.
A major role in the legislative and organizational support of the state family policy of the 1990s. played by the State Duma Committee on Women, Family and Youth Affairs, the Ministry of Social Protection of the Population (special Department for Women, Family and Children), the Commission on Women, Family and Demography under the President of the Russian Federation, formed in November 1993 and abolished in September 2000 Despite its consultative status, the commission took part in the development and coordination of family policy. This was due to the fact that it acted under the head of state, it included the heads of federal ministries and departments of social orientation, deputies of the State Duma, prominent scientists and heads of federal public organizations. The main merit of the commission was the development of new goals, principles and priorities of the state family policy, based on the concept of universal human values, and ensuring their reflection in Russian legislation. Its role was also significant in organizing and developing federal and regional family support programs, drawing the attention of the executive and legislative authorities, the public, and the media to family problems, and in activating family policy in the constituent entities of the Russian Federation. The Commission worked in constant contact with the temporary National Council for the preparation and holding of the International Year of the Family in the Russian Federation, which implemented a wide range of information, propaganda, scientific and cultural events in the field of family policy at the federal level and ensured the coordination of similar events in the constituent entities of the Russian Federation.
Obviously, a serious shortcoming of the system of state family policy management that has developed to date is its incompleteness at the highest level of state power. At the level of the Government of the Russian Federation there is no special ministry or department, as well as a corresponding subdivision in the structure of the Office of the Government of the Russian Federation. The Federation Council needs a special committee on family policy. In the Administration of the President of the Russian Federation, it is advisable to recreate a commission or council under the President of the Russian Federation. Corresponding structures must also be formed at the level of federal districts and subjects of the Russian Federation. In addition, it would be necessary to form special structural units dealing with family policy issues in federal ministries and departments of social orientation. Without such organizational support, it is unlikely that it will be possible to successfully solve the problem of completing the reform of the state family policy and ensuring its stable implementation in the new conditions.
Until now, there is no stable system for financing the activities of the family policy itself, including the issues of distributing expenses between the federal budget, federal extra-budgetary funds and the budgets of the constituent entities of the Russian Federation. Other sources of financing are insufficiently involved in solving these problems.
In connection with the interdisciplinary nature of family problems and interdepartmental mechanisms for their solution, it is necessary to create a solid financial base for financing scientific research in the field of family history and state family policy. The issue of coordinating the study of economic, demographic, ethnographic, psychological, legal and other problems of the family, which is now being dealt with by specialists from branch institutes and institutes of the Russian Academy of Sciences, the Russian Academy of Education, and the Russian Academy of Medical Sciences, has become ripe. The efforts of one departmental research institute of the family of the Ministry of Labor of Russia are clearly not enough, especially in conditions of underfunding.
The development of state family policy is limited by the lack of qualified personnel in the field of social work with the family, demography, sociology, psychology, law, pedagogy, economics and family planning. These personnel are necessary to ensure the activities of all management structures in the field of family policy and the development of scientific research.
Family problems are rarely discussed in the media, scientific journals, and special literature. Authorities and administrations, specialists and the population are not sufficiently informed about the current problems of families and ways to solve them.
A serious problem of information support for family policy is the lack of statistical and sociological information about the situation of families. It seems that the most priority areas for improving statistics are the development of statistical indicators of the demographic behavior of different types of families, the improvement of accounting for family income, data on the employment of family members with family responsibilities, and gender statistics.
Summing up the analysis of the processes of modernization of the state family policy in Russia, we note the discrepancy between the conceptual approaches and political practice of this policy (the correctness of the concept and inadequate practical measures), the state's underestimation of the importance of the state family policy and the family as the main pillar of socio-political transformations, the incompleteness of the legislative policy enforcement, as well as serious shortcomings in the institutional arrangements for the implementation of this policy.
One of the reasons for the inefficiency of modern state family policy is also the incompleteness of reforming the sectors of the social sphere, its transfer to market economic mechanisms and the corresponding reform of distribution relations.
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, subjects government controlled 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 provides 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, pensions, 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 relation to 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 the image of the municipality as a social space friendly to families, 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. State Duma of the 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
1. The essence of the state family policy
Another important principle of family policy is the principle of freedom of choice of role functions and family type. It means the independent determination by family members of their role functions, as well as the type of family that is most acceptable to them. Family members themselves determine what kind of family they will have: large, small or even childless. At the same time, the state is also free to make decisions to support those types of families and family behavior that are more in line with the interests of society.
The principle of equality in the family implies the achievement of a fair distribution of family responsibilities between spouses, as well as the provision of equal opportunities for self-realization in the labor sphere and social activities. In the presence of children, equality can only be achieved by taking into account their priority interests. State family policy measures should be aimed at ensuring the survival and protection of the child, his full psychological, physical, intellectual and social development.
The principle of the social contract presupposes the coordinated regulation of the relationship between the family and the state. It aims to create normal conditions for economically active family members to ensure well-being on a labor basis. And for this it is necessary to expand jobs, taking into account the interests of families with young children, encourage family businesses, expand the practice of retraining, obtaining new (more in demand on the labor market) professions for working family members. The contractual regulation between the family and the state is also designed to provide the necessary social protection for families in need of state support. Moreover, families are equal in the right to assistance, regardless of social status, nationality, place of residence and religious beliefs. The unconditional protection of the family from poverty and deprivation associated with forced migration, emergencies, wars, armed conflicts and other circumstances is an important state duty. But taking into account the local specifics and the peculiarities of a particular situation, it can also be regulated. On a contractual basis with state bodies, it is possible to strengthen public incentives that interest spouses in the reproduction and socialization of new generations. This practice is now observed in a number of countries in Latin America, where a man receives an increase in wages for the fact that his wife takes care of and raises a child at home.
The principle of unity of family policy at the federal and regional levels means that its goals are the same for the whole country. The family, regardless of its place of residence, is guaranteed the provision of minimum social guarantees and benefits established at the federal level. They can be supplemented by the authorities of the constituent entities of the Russian Federation and local governments. An example of this is the special regional family policy programs. These programs made it possible to implement some measures of additional targeted assistance to needy families.
The principle of social partnership in the development and implementation of family policy involves the participation of various family problems. And here, the need for cooperation between state bodies and public associations, creative unions, charitable and religious organizations, entrepreneurs, and other possible subjects of family policy is of particular relevance.
The principle of continuity means the preservation of existing social norms, benefits, achieved social guarantees, as well as effective traditional forms of family policy. This approach allows to ensure the stability of measures in this social activity.
Another important principle of family policy is the principle of basicity, the complexity of the family. It means placing the family at the center of the social system, raising its status, its role as a structural basic entity, overcoming the ordinary perception of this phenomenon as requiring only protection, supervision, and help. In modern conditions, it is necessary to create mechanisms for the self-rehabilitation of the family, turning it into a driving force of social transformations. Family policy should become the core, the determining link in social policy as a whole. The state of the institution of the family, the degree of its stability is the most important indicator of the adequacy of social policy to the laws and logic of social development in general, an indicator of the effectiveness of ongoing reforms.
No less important is the principle of the priority of the rights and interests of the child, the comprehensive development and respect for his human dignity. The participation of the state in ensuring the interests of the child in the family is not limited to granting him rights. It is equally important for the child to have a guarantee for the protection of these rights, as well as their protection in case of violation. Article 56 of the Family Code of the Russian Federation provides that the responsibility to protect the rights of the child is assigned to his parents, legal representatives, as well as to the guardianship and guardianship authorities, the prosecutor and the court. A minor, recognized in accordance with the law as fully capable before reaching the age of majority, has the right to independently exercise his rights and obligations, including the right to protection.
The principle of confidentiality on the part of social workers when working with families, provided there is no risk of child abuse.
In the field of managing family policy issues, the state implements the principle of an interdepartmental approach to its implementation, creates a system of federal and regional authorities that coordinate the development and practical implementation of state family policy.
2. Formation and implementation of the state family policy in the Russian Federation
Questions for self-control
Literature
The reforms carried out in the society in the 1990s had an ambiguous impact on the family and led to profound changes in its life activity. There was a sharp differentiation of family incomes, their mass impoverishment. The disorganization of family life is deepening, the instability of marriages is increasing, and the established moral and ethical norms and traditions are being destroyed.
The crisis in the state of the social institution of the family requires increased attention to it from the state for its strengthening and development. The experience of the world community shows that the institutional problems of the family are more effectively solved with the help of a specially organized system of state family policy.
State family policy- an integral part of social policy aimed at the institution of the family in order to strengthen, develop and protect its rights and interests, ensure the legal regulation of its relations with the state.
Family policy can also be defined as a set of practical measures that provide families with children with certain social guarantees, the purpose of which is to improve the well-being and ensure the functioning of the family in the interests of society. Family policy is aimed at mitigating the economic problems of the family, aimed at a more complete satisfaction of family needs.
“Family policy, according to A. I. Antonov, is the activity of the state, political parties, public organizations, interest groups, etc., aimed at reviving the family, family lifestyle, lost on a long historical path of the familistic culture of society, the return to the family of its inherent social functions, aimed at strengthening the family as a social institution” 2 .
Basic an object state family policy-family, subject-a set of specific family problems. They differ from the general social problems that characterize the entire population of the country, and are associated with the system of health care, education, culture, and employment. Family policy is often identified with demographic and general social policy.
State family policy is designed to systematically solve the problems of strengthening the family and family values, ensuring its interests in the process of social development; creating the necessary conditions for the implementation of families of their functions on the basis of their own labor activity; organization of the subjective role of the family in the process of implementing the state family policy; ensuring the protection of socially vulnerable families.
The state recognizes the social rights of the family and the need for their legislative consolidation. The guarantor of the social protection of the family, its rights, the rights of the child is the Constitution of the Russian Federation. The family (and not just the individual) is given a full-fledged social status, its interests are purposefully taken into account in the process of socio-economic and cultural development of society, the activities of government bodies, and the implementation of federal and regional programs. The legislation includes a set of legal norms regulating not only relations between family members, but also relations between the family and the state.
The state guarantees the macroeconomic and social standards necessary for the independent functioning of families in society; carries out targeted accounting and contributes to the implementation of the institutional rights and interests of families in the course of their life; creates conditions for ensuring the sovereignty of families and the development of their functions as a subject of social relations; provides protection for socially vulnerable families.
Family policy is formed as an independent direction of social policy and a system of purposeful activities, which provides for its own strategy, programs, organization, personnel, financial and other support. The social institution of the family is included in the system of state activity as an integral object.
In its content, family policy is complex and reflects the relationship between the state and the family in the main areas of society. At the same time, it focuses on the specific problems of the family associated with the implementation of its main social functions (reproductive, economic, life-preserving, educational). In this regard, a clear differentiation of family and social policy based on the separation of general social and specific problems of the family is of fundamental importance. The state ensures purposeful consideration and implementation of the institutional rights and interests of the family in various areas of public life, in the activities of government bodies, in planning, developing and implementing socio-economic programs, and forecasting the development of the country. The implementation of the goal and principles of the state family policy is controlled on the basis of a familistic examination of decisions made at various levels of government in terms of their impact on the life of the family.
The state interacts with the family on the basis of partnerships, ensures the balance of rights and responsibilities of state institutions and the family, creates the necessary conditions for enhancing the socio-economic potential of the family.
An important condition for the effectiveness of family policy is a differentiated approach that takes into account the peculiarities of the socio-economic development of the country, the historical stage of the transformation of the family institution, models and structure of families, their incomes, needs and interests. The tasks of stabilization and development of the family institution necessitate a systematic approach to the analysis of the processes occurring in it, the identification of characteristic, stable features of the family's life, the patterns of its development, and the assessment of the most painful processes.
The state ensures the unity of the implementation of the goal and principles of family policy at the federal, regional, and local levels. The subjects of the Federation, local self-government bodies supplement and implement family policy measures on the basis of state guarantees of functioning established for the family, and ensure coordination of actions of non-state subjects of family policy.
Thus, in the formation and implementation of family policy, it is important to take into account its basic principles. An analysis of the available literature and legal provisions on the problem allows us to identify the following principles.
The principles of family policy are determined by historical, ethnic, religious, cultural traditions, the material resources of society, and the socio-demographic situation.
The main principle is the independence and sovereignty of the family. This principle means its certain independence from the state, the ability to independently make decisions regarding family life. The family has the right to any, except for the criminal, lifestyle. Various measures of state family policy (economic, ideological, etc.) are designed not so much to regulate the behavior of the family as to promote its self-development, to provide an opportunity to choose forms of behavior. Certain restrictions on this principle can only be introduced and regulated by law (establishing the procedure for registering marriage and divorce, determining the technology of adoption, etc.).
In the USSR, family policy was limited, did not have a systemic character, and was identified with social policy. The institutional interests of the family were not taken into account. The state proceeded from its economic, industrial, defense needs, the demographic situation, the need to provide the country with mass and cheap labor. At the same time, women were included as much as possible in social production, children - in the system of public education. Family members spent most of his time outside the home, doing industrial and social affairs.
The family policy was manifested primarily in the regulation of marriage and family relations, stimulation of the birth rate, material support for families with children. According to the National Council for the preparation and holding of the International Year of the Family (1994), which coincides with our approach, from the 20s to the first half of the 30s. This policy was focused on helping urban women combine motherhood with labor in social production. From the second half of the 1930s to the 1970s, special attention was paid to encouraging high birth rates and large families, which was associated with huge population losses during the Great Patriotic War. In 1970-1980. the state concentrates its efforts on overcoming the poverty of families with children, stimulating the birth rate, and supporting parents in raising children. Assessing the measures taken during this period, we note that for all their limitations, dictated by ideological and other factors of the command-administrative system, they played a role important role in ensuring social protection of motherhood and childhood.
In the context of the social transformation of Russian society in the 1990s, the family did not become a full-fledged object of state policy. Its interests and demands as a social institution were little taken into account. Although some attempts to solve the problems of the Russian family by the state authorities were nevertheless made.
The crisis in the state of the institution of the family required increased attention to it from the state to strengthen it. In these changed political and economic conditions, there was a reassessment of state policy regarding the family. The trend of increasing attention to the family is reflected in the Constitution of the Russian Federation, the Family Code of the Russian Federation, and in sectoral legislation. Measures were taken to legislate the family rights of citizens (child allowances, tax and other benefits). Infrastructures dealing with the problems of the family, women and children were formed. At the federal level, the Department of Family, Women and Children's Problems was established within the structure of the Ministry of Social Development. Similar structures were formed at the regional and municipal levels. Corresponding committees and commissions appeared under the legislature.
An important stage in the development of the official family policy paradigm was the development of family policy concepts by the Committee for Family Affairs, Family and Demographic Policy under the Council of Ministers of the RSFSR (1991) and the National Council for the preparation and holding of the International Year of the Family (1993). These concepts reflect the ideology of universal values, the priority of the interests of the family and the individual, partnerships between the family and the state, its institutions that do not replace the family, but share with it the responsibility for creating the conditions for its functioning. However, these concepts did not have state status.
In the 1990s, the Presidential Program "Children of Russia" began to be implemented. It consisted of a number of targeted programs aimed at strengthening the Russian family.
At the end of 1995, a new Family Code was put into effect, aimed at more complete legal support for guarantees and rights in the sphere of family relations. In the second half of the 1990s, the necessary amendments were made to it.
And only in 1996, family policy received a state definition in the Decree of the President "On the main directions of state family policy" dated May 14, 1996 No. 712, which created the prerequisites for reaching a new level of interaction between the state and the family, the formation of family policy as an independent direction social policy.
At present, according to the Constitution of the Russian Federation, the family, motherhood, childhood are under the protection of the state. Among the legal acts aimed at social support of the family, motherhood, protection and ensuring the rights of children, solving acute problems of preventing neglect, delinquency of adolescents, developing a system of social services for families and children, it is necessary to name: “The main directions of state social policy to improve the situation of children in the Russian Federation until 2000 (national action plan for children)”; Family Code of the Russian Federation; within the framework of the presidential program "Children of Russia" - federal targeted programs "prevention of neglect and juvenile delinquency" and "Development of social services for families and children"; Regulation "On the foster family"; "The main directions of state family policy"; Law of the Russian Federation "On State Benefits for Citizens with Children"; "On the national action plan for the improvement of the status of women and the enhancement of her role in society until the year 2000" and etc.
Thus, the solution of the most acute problems of Russian families requires the development and implementation of federal and regional action plans in support of families, which provide for specific family policy measures indicating the timing, performers and sources of funding developed on the basis of reports on the situation of families in all regions of Russia and taking into account the regional specifics of the demographic , social and economic development.
It is the family and all its activities (household, upbringing, participation in social work, family-productive activities, etc.) that are directly and indirectly connected with a person; outside of this activity, neither man nor society can exist.
The main areas of family policy are:
improvement of material living conditions for families, prevention of poverty;
providing conditions for combining labor, professional activities with the fulfillment of family responsibilities and personal interests of a person;
providing comprehensive assistance to the family in raising children, supporting gifted children;
ensuring the health of mother and child;
protection of the rights of minors, prevention of social orphanhood, neglect and delinquency;
increased attention to incomplete families with disabled children, low-income families in order to create favorable conditions for their life;
comprehensive preparation of young people for marriage and family life and family planning;
prevention of family troubles, etc.
To implement the main directions of family policy, a number of state documents are being developed:
Report on the situation of families in the Russian Federation;
National Family Action Plan (medium-term state family policy);
Target federal program "Family";
Target departmental programs to improve the living conditions of the family;
Federal program for coordinating the activities of non-state subjects of family policy;
Regulations on the State familistic (family) examination;
Regional concepts and programs of family policy.
From the foregoing, we are talking about a comprehensive approach to the family, the ability of all subjects of family policy to defend its interests. Thus, in its content, family policy is complex and reflects the relationship between the state and the family in the main areas of society. A comprehensive program of family policy should be aimed at eliminating the causes that give rise to negative aspects in the life of the family in order to mitigate their consequences as much as possible. At the same time, it focuses on the specific problems of the family associated with the implementation of its main social functions (reproductive, economic, life-preserving, educational). In this regard, a clear differentiation of family and social policy based on the separation of general social and specific problems of the family is of fundamental importance.
The priority direction of family policy, both at the state and at the regional level, is to provide social guarantees and improve the well-being of families with children, since it is the family that provides the most comfortable conditions for the birth and upbringing of children, it is also credited with the role of a link between meeting the individual needs of the family and ensuring the functioning of the family in the interests of society.
To date, there are four main forms of state assistance to families with children:
Cash payments to the family for children and in connection with the birth, maintenance and upbringing of children (pension benefits).
Labor, tax, housing, credit, medical and other benefits for families with children, parents and children.
Free distribution to families and children (baby food, medicines, clothes and shoes, food for pregnant women, etc.).
Social services for families (provision of specific psychological, legal, pedagogical assistance, counseling, social services).
Questions for self-control
Expand the essence of state social policy.
What are the main principles of family policy. Which of them are the most important?
How was family policy formed in the USSR?
In what document did family policy receive state definition in the 1990s?
What are the main legal acts aimed at social support of the family, motherhood, protection and ensuring the rights of children.
List the main directions of state family policy at the present stage. Which of them are prioritised?
What state documents are being developed to implement the main directions of family policy?
Literature
Klamatova G.I. State family policy of modern Russia: Proc. allowance. M., 2004.
Family Code of the Russian Federation with amendments and additions as of September 15, 2003. Article 56
Family science: Proc. manual for universities / Ed. P. Ya. Tsitkilova. Rostov n/a, 2002.
Social Policy: Textbook / Under the general. ed. N. A. Volgina. M., 2003.
Khodostova E. I. Social policy. Proc. allowance for students. higher education. establishments. M., 2000.
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 the 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 |
Annex 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 | To 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 protection, education, upbringing, organization of leisure 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 approximately 190 thousand families ( 41.6%) the number of residents is greater than the number of rooms available in the dwelling. Noticeable changes in the age composition of the population, intensification of the demographic aging process, changes in the social and economic situation in the country have led to 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 1,000 population (lower only in Tula region- 8.0, in Tambov - 8.2 and in 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 and age group 20-24 years old. 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 inter-census period (1989-2002), the attitude of Ryazans 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 maladjustment 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;
involvement 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.
IN 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.