On the complete failure of the draft Concept of the State Family Policy of the Russian Federation until 2025 of the year
About positioning and "multisubjectness"On the eve of the International Day of the Family, the draft of the long-awaited Concept of the State Family Policy of the Russian Federation before 2025 was announced. The text of the project is currently posted in the public domain on the website of the Ministry of Economic Development (this is evidenced by the corresponding copyright protection mark) entitled “A single portal for posting information about the development of draft regulatory legal acts and public discussion results by federal executive bodies”.
At the same time, the representative of the Ministry of Labor and Social Protection - Elena Pugacheva, who holds the position of Deputy Director of the Department for Population Policy and Social Protection of the Population of the Ministry of Labor and Social Protection, is indicated in the “responsible person” column.
By the way, on the website of the Ministry of Labor and Social Protection itself news materials related to the development of the Family Policy Concept are placed in the Demographic Policy section, although the draft Concept itself begins with the words: “State family policy is an integral part of Russian social policy.”
In short, it creates the impression of complete chaos.
Against the background, to put it mildly, the positioning document is virtually devoid of managerial subjectivity. In the considered Concept of the State Family Policy, there is no single federal entity responsible for the implementation of the family policy. As in the case of demographic policy, they are trying to give this area a super-departmental (multi-subject) status.
The idea of super-departmental, interdepartmental and multi-subject status of family policy is quite acceptable as an auxiliary toolkit, but the key point is the implementation of this policy by a specific structure, endowed with relevant functions and resources, acting as a conductor and "general manager" again a specific action program.
Otherwise, we will continue to witness managerial chaos, disunity of actions, duplication of functions, dispersal of resources, etc., between various federal and regional state structures.
It is noteworthy that in the section devoted to the phased implementation of the Concept, the absence of a family policy management system is actually recognized. Moreover, the document directly states that “at the first stage (2015 - 2019 years) ... the mechanisms for implementing the concept, the system for managing its implementation (highlighted by I. IB), financing mechanisms, information-analytical and personnel support will be created , system of legal support of the state family policy ".
In other words, the Federal level concept for the long-term perspective [1] is approved first, and then a “management system for its implementation” is formed. With such a “thoughtful” approach, a sensation of a large-scale social experiment with a previously known result is created.
About basic definitions
What terms should be present in the conceptual framework of the Concept of State Family Policy?
It would be logical to expect that such a question should arise one of the first when writing this important document. However, the authors of the Concept, as it turned out, have their own logic in which the definition of basic definitions does not fit.
Unfortunately, in the conceptual document, which is being developed in Russia for the first time and designed for more than a decade perspective, there are no definitions of such fundamental concepts as "family", "family policy", and "family values" on which the Concept is built. Moreover, in the Concept there is no conceptual apparatus as such.
Meanwhile, in other state concepts of the federal level - the Concept of the Migration Policy of the Russian Federation for the period up to 2025 and the Concept of Public Security of the Russian Federation - the basic concepts are stated at the very beginning of the text.
The conceptual apparatus is also contained in the text of regional concepts of family policy. The basic concepts are set out in great detail in the Family Policy Concept in St. Petersburg on 2012 - 2022 years (10.07.2012), the Concept on the implementation of the state family policy in the Sverdlovsk region for the period up to 2015. (04.12.2002); Concepts of family policy of the Ulyanovsk region for the period up to 2025 of the year (24.12.2012). The description of such basic concepts as “family” and “family policy” is also present in the Concept of family policy in the Nizhny Novgorod region (23.12.2003).
Obviously, in today's “war of meanings”, when in a number of countries and international institutions, the family is trying to maximize the interpretation of the family, including homosexual unions, the lack of clear definitions is at least irresponsible.
As a result of neglecting the need to define the concepts used, the family in the framework of the Concept acts as an indefinite abstraction, and the family policy embodies a set of standard measures with a pronounced emphasis on the material aspects of the life of the Russian family.
The practical value of the document is also greatly reduced due to the lack of semantic distinctions between family, family group, extramarital unions, etc.
Of particular perplexity is the absence in the document of an elementary typology of the families to which the Concept is oriented. In fact, the crucial act for many spheres of social development is a legal act devoid of a description of the object of management, while the specificity of the subject matter, on the contrary, implies a very clear specification.
It is clear that the abstract perception of the family deprives the responsible departments of the very possibility of implementing an integrated family policy, differentiated by the object of management. It is not difficult to guess that in relation to a young family one model of state policy is needed, and in relation to a large family it is completely different. Similarly, multi-generation, consolidated, substitute families or, for example, single parents assume the development and implementation of various family policy measures. In such a complex and multifaceted sphere, primitivism and templating are unacceptable.
On goal setting, the basic principles and the "uniqueness" of a creative approach
The goal of the family policy proposed in the Concept, in our opinion, is only a detailed version of the goal of the same name, spelled out in the Presidential Decree of 14 of May 1996, “On the main directions of the state family policy”, and for some reason very much resembles the goal-setting, which was recorded in 1999 in the Concept of State Family Policy of Ukraine. We suggest comparing the corresponding text fragments in the indicated documents.
Draft Concept of the State Family Policy of the Russian Federation for the period up to 2025: “The purpose of the state family policy for the period up to 2025 is to promote the strengthening and development of the institution of the family and the values of family life, creating the necessary conditions for the family to fulfill its functions, improving the quality of life of families, ensuring family rights in the process of its social development. ”
The concept of the state family policy of Ukraine from 17 September 1999 of the year: “The purpose of the state family policy is to provide favorable conditions for the comprehensive development of the family and its members, the fullest realization of their functions by the family and improving its standard of living, increasing the role of the family as the foundation of society”.
Presidential Decree of 14 of May 1996 of the Year "On the main directions of state family policy": "The purpose of state family policy is to provide the state with the necessary conditions for the family to fulfill its functions and improve the quality of life of the family."
In our opinion, the authors of the concept paper should not have bothered and brought into the world clearly redundant wording, borrowed in many ways from other sources. In this case, it would be quite enough to mention that the Purpose of the state family policy of the Russian Federation for the period up to 2025 was specified in the Concept of the state family policy of Ukraine from 17 September 1999.
If the geography of the developers of the project of the Concept of the State Family Policy of the Russian Federation for the period up to 2025 of the year with the specified borrowing of fragments of other legal documents extended not only to Ukraine, but at least to St. Petersburg or the Ulyanovsk region, then they would have had the opportunity to get acquainted, even if not ideal , but with more successful and original goal setting patterns. Below is a description of the goals of the family policy contained in the Family Policy Concept in St. Petersburg on 2012 - 2022 and the Family Policy Concept of the Ulyanovsk Region for the period up to the year 2025.
The concept of family policy in St. Petersburg on 2012 - 2022 years: “The strategic goal of family policy in St. Petersburg is to achieve family well-being as a condition for the well-being of each person and society as a whole based on the support of family values and family lifestyle, strengthening internal and external resources family, its ability to successfully perform its basic functions, strengthening the role of the family as an equal subject of social relations, promoting the processes of social integration of all types of families into society. ”
The concept of family policy of the Ulyanovsk region for the period up to 2025: “The strategic goal of the Concept is to strengthen the family’s institution, revive and preserve spiritual and moral traditions, family relations, promote the social and economic foundations of the family and family values, introduce measures aimed at strengthening social health and promoting a healthy lifestyle for families of different generations. ”
Unfortunately, the “compilation” lacking minimal creativity is not limited to goal setting. The entire set of principles established by the draft Concept of the State Family Policy of the Russian Federation for the period up to 2025 of the year, almost exactly repeats the list of principles of family policy contained in the decree of B. N. Yeltsin of 14 of May 1996 of the Year "On the main directions of state family policy". Changed only some phrases and sequence, which sets out the principles in the text of the original source. This can be easily seen by looking at the full list of principles of the Concept and comparing them with the aforementioned presidential decree.
Draft Concept of the State Family Policy of the Russian Federation for the period up to 2025: “independence, autonomy and activity of the family in making decisions regarding their livelihoods”.
Presidential Decree of 14 of May 1996 of the Year "On the main directions of state family policy": "The independence and autonomy of the family in making decisions regarding their development. Economic, legal and ideological measures of state family policy should not regulate the behavior of the family, but promote its self-development, provide an opportunity to choose forms of support. ”
Draft Concept of the State Family Policy of the Russian Federation for the period up to 2025: “equality of families and all their members in the right to support, regardless of social status, nationality, place of residence and religious beliefs”.
Presidential Decree of 14 of May 1996 of the Year "On the main directions of state family policy": "Equality of families and all their members in the right to support regardless of social status, nationality, place of residence and religious beliefs."
Draft Concept of the State Family Policy of the Russian Federation for the period up to 2025: “the responsibility of each family for the upbringing and development of the child’s personality (children) and for the preservation of his (their) health”.
Presidential Decree of 14 of May 1996 of the Year "On the main directions of state family policy": "The priority of the interests of each child, regardless of the order of birth and the family in which he is brought up. Family policy measures should be aimed at ensuring the survival and protection of the child, his full physical, mental, intellectual and social development. ”
Draft Concept of the State Family Policy of the Russian Federation for the period up to 2025: "equality between men and women in achieving a more equitable distribution of family responsibilities, as well as in the possibilities of self-realization in the labor sphere and in social activities."
Presidential Decree of 14 of May 1996 of the Year "On the main directions of state family policy": "Equality between men and women in achieving a more equitable distribution of family responsibilities, as well as in the possibilities of self-realization in the labor sphere and in social activities."
Draft Concept of the State Family Policy of the Russian Federation for the period up to 2025: “partnership between the family and the state, cooperation with public associations, charitable organizations and entrepreneurs”.
Presidential Decree of 14 of May 1996 of the Year “On the main directions of state family policy”: “Family and state partnership, sharing responsibility for the family, cooperation with public associations, charitable organizations and entrepreneurs”.
Draft Concept of the State Family Policy of the Russian Federation for the period up to 2025: “a differentiated approach in providing guarantees for maintaining the standard of living for disabled family members and creating conditions for the economically active family members to ensure well-being on an employment basis”.
Presidential Decree of 14 of May 1996 of the Year “On the main directions of state family policy”: “Implementation of a differentiated approach in providing guarantees for maintaining a socially acceptable standard of living for disabled family members and creating conditions for the economically active family members to ensure well-being on an employment basis.”
Draft Concept of the State Family Policy of the Russian Federation for the period up to 2025: “unity of the principles of family policy at the federal, regional and municipal levels”.
Presidential Decree of 14 of May 1996 of the Year "On the main directions of state family policy": "The unity of family policy at the federal and regional levels. Approval by the President of the Russian Federation of the Main Directions of the State Family Policy and ensuring the provision of the family with minimum social guarantees and benefits established at the federal level, their addition and development at the level of the constituent entities of the Russian Federation and local governments ”.
Draft Concept of the State Family Policy of the Russian Federation for the period up to 2025: “ensuring the availability of targeted, timely and effective assistance for families in need, especially classified as social risk groups, equal access to social services for all types of families”.
Presidential Decree of 14 of May 1996 of the Year "On the main directions of state family policy": "Taking on the state obligations to unconditionally protect the family from poverty and deprivation associated with forced migration, natural and man-made emergencies, wars and armed conflicts."
The only significant difference in the list of principles in the two documents is the absence in the draft Concept of the State Family Policy of the Russian Federation for the period up to 2025 of one of the principles contained in the Presidential Decree of 14 of May 1996 “On the main directions of the state family policy”. We are talking about the following, in our opinion, unjustifiably ignored principle of family policy: “Continuity and stability of state family policy measures. Preservation of the achieved social guarantees of family support, their further improvement. ”
There is a question about the expediency of writing a Concept, which almost exactly repeats the previous regulatory acts. If the authors of the Concept find the text of the Decree of the President of the Russian Federation of 14 of May 1996 “On the main directions of state family policy” in terms of family policy priorities that meet modern realities and the needs of the Russian family (which can only cause regret), then duplicate the same provisions, changing only the names of the documents?
On the review procedure and level of competence
Initially, the draft Concept was posted for public comment only for 2 weeks, which, according to representatives of the parent community, was not reported in any media. However, at the request of the public, the discussion period was nevertheless extended to 60 days.
As reported on the website of the Ministry of Labor and Social Protection in a publication on 15 in May 2014, the development of this Concept was supported by members of the Public Council under the Ministry of Labor of Russia.
It remains only to express the hope that the support was unanimous, as in good Soviet times. However, how competent is such support, if we assume that it was expressed consciously, to judge the readers. We note that out of 33 respected and status members of the said Public Council, unfortunately, there is not one scientist specializing in family and family policy issues, and not one representative of numerous parent organizations (except for the only representative of public associations of parents of disabled children) .
At the same time, it would be logical to expect that the discussion and especially the public support of such an important document designed for a multi-year perspective should take place in an atmosphere of public openness with the overwhelming majority of relevant scientists (sociologists, demographers, familists) and representatives of the target group from the parent and family movement, which is not limited to associations of parents of children with disabilities. For all the importance of solving the problems of this children's group, the share of children with disabilities in Russia is less than 2,5% of the total number of children. The concept itself is relevant to all Russian families and children living in them. Although all of the above makes it doubt.
It would be strange if during the drafting of the federal budget the opinion of economists would have remained unclaimed or when discussing the draft regulations relating to the Russian army there were no military. This is exactly what happened with the draft Concept of the State Family Policy of the Russian Federation for the period up to 2025.
A similar situation exists in the working group. Among the scientists who joined the interdepartmental working group to develop the concept of state family policy in the Russian Federation, we could not find a single sociologist, although it is sociological scientists who are closest to the rest of the specialists to the subject matter. In addition, there was not a single psychologist in the working group (on the issue of family relations), a political scientist (whose presence is assumed based on the document’s name), a teacher (on the issue of upbringing), a cultural scientist (on the issue of family traditions). There are no members of the parent and pro-family organizations in the list of members of the working group.
For some reason unknown to us, the scientific part of the working group is monopolized by economists and lawyers. Of the ten representatives of scientific and educational institutions that make up this working group, seven are economists and another three are lawyers, including the juvenile specialization. At the same time, five of the seven economists mentioned are represented only by two scientific and educational institutions: the National Research University Higher School of Economics (3 member of the working group) and the RANEPATE (2 member of the working group).
Among the scientists involved in family and demographic issues, the working group included two economists - Valery Vladimirovich Elizarov (senior researcher at the Institute of Demography, HSE, responsible executive and participant in major research projects of the United Nations Population Fund (UNFPA), UN Children's Fund (UNICEF) ), United Nations Development Program (UNDP), World Bank) and Irina Kalabikhina (Assistant Professor of the Department of Population, Faculty of Economics, Moscow State University, Member of the International Association of Feminist Economy Researchers ki).
In conclusion, it should be noted that the concept of federal significance, aimed at one of the key areas of public policy, was developed without the constant participation of representatives of the regions. It is hardly possible to consider episodic outdoor activities imitating the desire for inter-regional consolidation as a full-fledged interaction with the regions.
The working group included only one representative, whose place of work is outside of Moscow. Such an approach, perhaps, would be appropriate if it were about the Concept of family policy of the city of Moscow, but it is absolutely not acceptable in the case of the development of an all-Russian concept.
In general, the draft Concept can be described as crude, ill-conceived, superficially compiled, without deep and meaningful involvement of its authors in the essence of the problems of modern family politics. In our opinion, the draft Concept is a model of a soulless, bureaucratic and highly unprofessional approach to the most serious problems, on whose solution the very existence of society and the state directly depends.
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