THE MILLENNIUM DEVELOPMENT
GOALS AND RUSSIA’S NATIONAL
PROJECTS: STRATEGIC CHOICES
MILLENNIUM DEVELOPMENT GOALS ADAPTED FOR RUSSIA
Goal 1. Reduce poverty
and eradicate hunger
1. Halve by 2015 the general poverty level and eradicate extreme
poverty among non-marginal groups of the population.
2. Provide access to food for the poor.
Goals 4 and 5. Reduce maternal mortality and
mortality of children under five
13. Increase life expectancy and reduce mortality from major causes.
14. Promote changeover in society to a healthier life style.
15. Reduce the mortality of children under five by at least 50%
by 2015, as compared with 1990 (from 21.5 to 11 per 1000).
Goal 2. Increase access to education
3. Involve vulnerable groups of the population in education and
16. Reduce maternal mortality by at least 50 % in the period
1990-2015.
socialization.
4. Ensure participation in pre-school education of children
from low-income families and children residing in rural
areas.
5. Reduce the gap in funding and access to general secondary
and primary vocational education between and within
Goal 6. Combat HIV/AIDS, tuberculosis, and other
diseases
17. Halt and begin to reverse the spread of HIV/AIDS.
18. Halt the spread and significantly reduce the spread of
tuberculosis (TB) and other socially-based infectious diseases.
regions.
6. Update the content of general secondary education towards
developing practical skills and application of knowledge.
7. Improve compliance of vocational education with the modern
economic environment and labor market .
Goal 7. Ensure environmental sustainability
19. Integrate the principles of sustainable development into country
policies and programmes and prevent losses of natural resources.
20. Provide the population with sustainable access to safe
drinking water.
Goal 3. Ensure gender equality
and improve the situation
of women
8. Eliminate gender inequality in primary and secondary
education and at all levels of education by 2015.
9. Ensure equal access to political institutions for women and
men.
10. Eliminate discriminatory practices in labor
and employment.
11. Create effective mechanisms for preventing violence against
women.
12. Reduce the impact of unfavorable socioeconomic factors on
health and life expectancy, especially male.
21. Improve people’s living conditions.
Goal 8. Participate in global development
partnerships adequate to Russian national
interests
22. Create of favorable international conditions for elimination
of internal obstacles to human capital development and
achievement of the MDG+ in Russia.
23. Prioritise assistance by Russia in solution of global problems,
whose manifestations inside Russia are particularly acute
and damaging.
24. Gradually build-up Russia’s contribution to international
development programmes as a donor country.
THE MILLENNIUM DEVELOPMENT
GOALS AND RUSSIA’S NATIONAL
PROJECTS: STRATEGIC CHOICES
Institute for Complex Strategic Studies
Moscow 2006
This publication was prepared by the Institute for Complex Strategic Studies (ICSS) at the request of the UN Office in the
RF and it looks at possibilities of implementing the approaches of the Millennium Development Goals concept, adopted
at the UN summit in 2000 and modified for Russia’s context, for further improvement of the quality of National Projects.
Intended for civil servants, researchers, teachers and students of higher educational institutions.
Project manager:
Evgeny V. Pogrebnyak, Head of Research Department, ICSS
Authors:
Elena S. Kiseleva, Expert, Research Department, ICSS
Vera Y. Kononova, PhD (Economics), Expert, Research Department, ICSS
Boxes contributors:
K.D. Danishevsky, PhD (Medicine), Assistant Professor, School of Public Health, Department of Health Management,
Moscow Sechenov Medical Academy; Consultant, Open Health Institute Foundation
V.V. Elizarov, PhD (Economics), Director, Centre for Population Studies, Department of Economics, Lomonosov
Moscow State University
N.L. Khananashvili, Director, Legal Department, ‘No to Alcoholism and Drug Addiction’ Russian charity foundation
The authors’ opinions do not necessarily reflect the views of UN system and its institutions.
The authors would like to express sincere gratitude to O.S. Vikhansky, PhD (Economics), Professor, Director General, Institute for Complex
Strategic Studies; and to their colleagues D.A. Plekhanov, N.M. Churkina, N.V.Shvareva for the invaluable support and contribution to the publication.
The authors also express their appreciation for consultations and comments to A.A. Auzan, PhD (Economics), Professor, President of the
National Projects Institute ‘Social Contract’; N.Y. Belyaeva, PhD (Law), Professor, Department of Public Policy, State University Higher School of
Economics; L.N. Ovcharova, PhD (Economics), Research Director, Independent Institute for Social Policy.
Significant support to the project was provided by staff members of the UN system organisations in the Russian Federation: Sietske
Steneker, UN Resident Coordinator a.i. in the RF; Kaarina Immonen, UNDP Resident Representative a.i. in the RF;
D.S. Mariassin, PhD (Economics), UN Coordination Officer in the RF; Edem Bakhshish, UNDP Assistant Resident Representative in the RF; V.K.
Zotikova,
Communications
Analyst,
UNDP
in
the
RF;
A.S.
Flyugova,
UN
Coordination
Assistant
in
the
RF;
E.G. Potapchik, PhD (Economics), WHO National Professional Officer, HCPS Programme; M.V. Semenchenko, PhD (Medicine), UNAIDS
Programme Advisor; A.H. Bidordinova, UNAIDS Project Coordinator; Martina Lubova, Senior Employment Expert, ILO Office in Moscow; A.S.
Mordovin, UNFPA Programme Associate.
The publication has been prepared with the financial support of the United Nations Development Programme (UNDP),
United Nations Population Fund (UNFPA) and United Nations Children's Fund (UNICEF)
2
TABLE OF CONTENTS
INTRODUCTION .........................................................................................................................................5
I. MILLENNIUM DEVELOPMENT GOALS AND NATIONAL PROJECTS:
COMMON AND SPECIFIC FEATURES......................................................................................................6
1.1. National Projects as a new instrument of social policy:
advantages, risks, and scope for adjustment ..........................................................................................6
1.2. Approaches to achieving the MDG+ and the goals of the National Projects ...........................................7
1.3. Poverty reduction in the context of MDG+ and the National Projects ....................................................9
II. THE NATIONAL PROJECT “EDUCATION” AND ACHIEVEMENT OF MDG+ .........................................11
2.1. Comparing goals of the National Project “Education” with MDG+ ........................................................11
2.2. Analysis of indicators of education development in the National Project “Education” and MDG+ ........12
2.3. Recommendations on the possible enhancement of the National Project
“Education” with regard to MDG+.......................................................................................................14
III. THE NATIONAL PROJECT “HEALTH” AND REALIZING MDG+...........................................................16
3.1. Compliance of MDG+ and the goals of the National Project “Health” ..................................................16
3.2. Public health indicators in the National Project “Health” and MDG+ ....................................................18
3.3. Recommendations on possible enhancement of the National Project “Health” with regard to MDG+ .....19
IV. MEASURES OF DEMOGRAPHIC POLICY IN THE CONTEXT
OF NATIONAL PROJECTS AND MDG+ ...............................................................................................20
4.1. An improvement in demographics as a goal of the National Projects and MDG+ ................................20
4.2. Stimulating birthrate – a new national project?....................................................................................21
4.3. Recommendations on enhancing the proposed measures
for stimulating the birthrate with regard to MDG+.............................................................................23
V. THE ROLE OF CIVIL SOCIETY IN IMPLEMENTING THE NATIONAL PROJECTS ...................................24
5.1. The involvement of civil society in formulating, implementing and monitoring of the National Projects .....24
5.2. Recommendations on expanding the involvement of civil society in the formulation,
implementation and monitoring of the National Projects ....................................................................26
CONCLUSION ...........................................................................................................................................28
3
TABLE OF CONTENTS
LIST OF BOXES
BOX 1. Millennium Development Goals (MDG) and their adaptation for Russia..........................................5
BOX 2. Contribution of the National Projects into the budget expenditures
on education, public health, housing and the agricultural sector.....................................................6
BOX 3. The International experience of implementing national projects
and programmes: management and monitoring systems................................................................7
BOX 4. Economic growth and poverty reduction in Russia..........................................................................9
BOX 5. Potential of the National Agricultural Development Project in reducing poverty ............................10
BOX 6. Shortage of skilled professionals in the Russian economy .............................................................14
BOX 7. Halting the spread of HIV within the framework of the National Project “Health” .........................17
BOX 8. Importance of disease prevention in reducing the major causes of death......................................18
BOX 9. International experience with policies aimed at stimulating the birthrate ......................................22
BOX 10. The role of the National Project “Affordable and Comfortable Housing
for Russian Citizens” in stimulating the birthrate .........................................................................23
BOX 11. The primary means of government support of NGO activity in Russia..........................................26
BOX 12. Indicators of social involvement...................................................................................................27
4
INTRODUCTION
The National Projects launched in Russia in 2006 are
an important step toward improving people’s general
well-being and quality of life. The decision to implement
these National Projects was driven by a need to provide
a new impetus for improvements, and greater efficiency in
the areas of agriculture, education, housing construction,
and public health.
To achieve these vital goals of socio-economic
Due to the indisputable
importance of the National Projects
to the country’s further
socio-economic development,
the government is striving
to perfect the National Projects
by tapping into domestic potential,
as well as international experience.
development, additional budgetary funds have been
allocated to the National Projects. Direct expenditure
improving people’s well-being and increasing their access
from the federal budget alone should amount to at least
to basic social services. The long-term outlook of MDG+
120 billion rubles in 2006, and more than 170 billion rubles
provides an opportunity to better reflect the strategic
in 2007.
nature of the measures proposed within the framework of
The goals of the National Projects are likely to be achieved
the National Projects, to better define the approaches to
because there is a high level of political control over their
meeting the Projects’ goals, and to improve the system of
implementation. The importance of the National Projects to
indicators that are used to evaluate the results.
current state policy has been shown through the creation of
a coordinating body, the Council for National Projects and
Demographic Policy under the President of the Russian
Federation.
The National Projects represent a new tool for
implementing social policy. The need to improve existing
approaches to decision-making and policy implementation
arose from the absence of any similar previous experience
coupled with the political significance of the National
Projects.
The publicity of the National Projects implies that
experts and civil society are participating more actively in
their formulation, implementation and monitoring. Due to
the indisputable importance of the National Projects to
the country’s further socio-economic development, the
government is striving to perfect the National Projects by
tapping into domestic potential, as well as international
experience.
MDG+ would emphasize the focus of the National
Projects toward long-term strategic targets. The
Millennium Development Goals as adapted for Russia,
commonly known as MDG+, reflect what are currently the
most important areas for the overall development of
human potential, including of the socially vulnerable
population groups. Like MDG+, the National Projects are
BOX 1
MILLENNIUM DEVELOPMENT GOALS (MDG) AND
THEIR ADAPTATION FOR RUSSIA
The Millennium Development Goals (MDG) are a set of
indicators proposed by the UN for assessing the efficiency of
socio-economic policy in various countries of the world. An
essential feature of MDG is the adoption of a timeframe,
and specific quantitative indicators, for the achievement of
specific goals. The MDG indicators allow to assess the level of
socio-economic development in a specific country, analyze the
effectiveness of social policy, and compare the results against
those of other countries.
Owing to differences among countries and the urgency of their
various social problems, the choice of specific indicators requires
research and analysis to better adapt MDG to the context of a
country. The concept of MDG+ introduces a set of measurable
MDG-based indicators that have been adapted for Russia.
The MDG+ indicators were developed in 2005 by a group
of independent experts as part of an initiative of the United
Nations Development Program (UNDP), and within the framework
of the preparation of the Human Development Report for the
Russian Federation.
aimed at creating conditions that are conducive to
5
I. MILLENNIUM DEVELOPMENT GOALS AND NATIONAL PROJECTS:
COMMON AND SPECIFIC FEATURES
The implementation
of the National Projects will have
a direct impact on people’s quality
of life and broaden the potential
for human development in Russia.
1.1. National Projects as a new instrument
of social policy: advantages, risks,
and scope for adjustment
Expanding opportunities for human development.
The National Projects are aimed at increasing access to
education and public health, boosting socio-economic
defined priorities and heighten the responsibility
development in rural areas, and providing people with
of policymakers in meeting goals.
better housing. This means that the implementation of
Advantages of the National Projects as a form of
the National Projects will have a direct impact
government spending. The National Projects
on quality of life, as well as the potential
as programmes with specific spending targets are
for further human development in Russia. The key
managed by a special body and are characterized
characteristic of the National Projects, in comparison
by specific procedures for assessing results. In this regard
with existing federal target programmes, is that they
the National Projects compare favorably to other forms
concentrate resources on a limited number of clearly
of targeted expenditures because of the extended
powers of the management bodies, high level of political
control over spending, public awareness,
BOX 2
CONTRIBUTION OF THE NATIONAL PROJECTS INTO
THE BUDGET EXPENDITURES ON EDUCATION, PUBLIC HEALTH,
HOUSING AND THE AGRICULTURAL SECTOR
and personalized responsibility.
•
Extended powers of the specialized project
management bodies. The statute of the Council
The expenditures on the National Projects are relatively low, constituting approximately 10 percent of total government spending
on the four targeted areas (provided that the federal and regional
governments fulfill their financial commitments in 2006). The
spending caps reflect the nature of the National Projects as pilot
programmes that will need to be refined over the course of their
implementation. Funding for the National Projects may be
increased if they are shown to be highly successful. MDG+ allow
for the adjustment of the goals of the National Projects to comply
with the long-term development priorities of the country.
for National Projects and Demographic Policy
under the President of the Russian Federation
gives it the right to obtain information from officials,
social organizations, and government agencies
of various levels.
•
implementation. The National Projects correspond to
the main social policy initiatives of the President of the
Russian Federation. The President acts as the Chairman
STRUCTURE OF GOVERNMENT SPENDING
IN THE TARGETED AREAS
88
billion roubles in 2006
25
of the Council for National Projects and Demographic
National Projects
Federal Target Programs not included
in the National Projects
Budgeted Costs
Policy, while the Presidential Administration
is responsible for managerial support.
•
Publicity and personalized responsibility. The
Council for National Projects and Demographic Policy is
956
939
comprised of representatives of state bodies, as well
60
as experts and representatives of non-governmental
435
Public Health
Education
Affordable Housing
organizations. Those in charge of carrying out activities
16
57
Agricultural
Development
Source: ICSS estimates based on the Federal Law "On the Federal Budget of the
Russian Federation for 2006"
6
High-level political control over project
within the framework of the National Projects have
been appointed. Plans are in the works to allow for
constructive criticism via telephone hotlines
and monitoring not only by the Parliament,
but by the general public.
The long-term development guidelines
formulated by MDG+ lay the groundwork
for strengthening the strategic component
of the National Projects. Approaches
embedded in the MDG+ and indicators
for assessing efficiency, may be used
in broadening the scope
of the National Projects in Russia,
as well as customizing the means
for their implementation
and monitoring.
Implementation of the National Projects entails
certain risks. The short-term risks of the National
Projects are primarily related to the lack of experience in
Russia in implementing similar programmes. Results-based
programming tools are still new to the Russian budget,
despite an expansion of a targeted approach to financing
over the past few years. Difficulties are inherent in the
coordination of various budgets, something crucial to the
success of the projects.
The long-term risks of the National Projects arise from
the fact that the sustainability of the project results
is uncertain. The efficacy of expenses incurred within
the framework of National Projects is dependent
on the extent to which the funding corresponds
to the attainment of long-term goals in agriculture,
education, housing and public health.
BOX 3
THE INTERNATIONAL EXPERIENCE OF IMPLEMENTING
NATIONAL PROJECTS AND PROGRAMMES: MANAGEMENT AND
MONITORING SYSTEMS
As a rule, project management is carried out by established
Programme Implementation Boards that report to the government, but enjoy autonomy in their day-to-day activities.
Monitoring of national projects is generally conducted by the
coordinating state agencies, which make assessments based on a
set of indicators corresponding to the goals of the project.
In Denmark, the main body responsible for the management of
the National Programme “Digital Northern Denmark” was a Board
comprised of an Executive Committee, a Committee of Directors,
and Project Groups. The Executive Committee was responsible for
day-to-day management, while the Committee of Directors was
responsible for ensuring regional support.
The implementation of the Project was monitored by the
Programme Secretariat, upon whose assessment the Executive
Committee and the Committee of Directors based its decisions.
Successful projects received broad assistance with publicity and
the search for additional sources of funding in order to expand
their operations. Less successful projects were re-evaluated with
respect to their goals, approaches, and target indicators1.
In Brazil, the management of projects within the framework of
the Government Programme “Brazil in Action” was carried out by
Working Groups comprised of representatives of relevant government ministries, business, research institutions and non-governmental organizations. The Working Groups were headed by Project
Managers, who also were state officials.
For qualitative monitoring, a special information system was set up
providing complete online data on the current status of the projects, and the course of their implementation. The monitoring data
provided a basis for the annual project assessment by managers,
branch ministries and the Ministry of Planning2.
International experience in improving quality of life,
reflected in MDG+, can be useful in refining
above risks of the National Projects will increase
the National Projects and reducing the risks involved
opportunities for the development of human
in their implementation. Firstly, the long-term
potential in Russia.
development guidelines formulated by MDG+ lay
the groundwork for strengthening the strategic
component of the National Projects. Secondly, approaches
embedded in the MDG+ and indicators for assessing
1.2. Approaches to achieving the MDG+
and the goals of the National Projects
efficiency, may be used in broadening the scope
of the National Projects in Russia, as well as customizing
Correlation between the goals of the National
the means for their implementation and monitoring.
Projects and MDG+. The National Projects and MDG+ are
Therefore, using MDG+ with a view of reducing the
both geared toward reducing poverty and increasing
1
2
See also http://www.detdigitalenordjylland.dk (in English)
See also http://www.planejamento.gov.br (in Portuguese)
7
MILLENNIUM DEVELOPMENT GOALS AND NATIONAL PROJECTS: COMMON AND SPECIFIC FEATURES
The National Projects
and MDG+ are both geared toward
reducing poverty and increasing
access to resources for human
development.
TABLE 1. Conceptual differences between the National Projects
and MDG+
FEATURES:
access to resources for human development. The National
Projects, both directly and indirectly, promote a reduction
in poverty by raising incomes in agriculture and
MDG+
NP
Goals Selection
+
+
Approaches to Solutions
+
±
Resources and Implementation Mechanism
+
Budget Efficiency
(expenditure-based indicators)
+
Final Efficiency
(outcome-based indicators)
+
±
state-funded organizations. Moreover, they provide
the general population with greater access to resources
Projects are largely intended to improve the well-being of
for education, housing, and public health.
people employed in state-funded organizations.
The National Projects in Russia are focused on such
The conceptual differences between the National
MDG+ as increasing access to education, reducing
Projects and MDG+ can be seen in their temporal horizons,
maternal and child mortality, and combating diseases
chosen approaches to solutions, and indicators for assessing
including HIV/AIDS, tuberculosis, and other
results.
social infectious diseases. Moreover, some aspects
MDG+ take a long-term view toward improving quality
of the National Projects for education
of life (by 2015), whereas the National Projects look only two
and affordable housing are consistent, to a certain
years into the future. This difference explains why the
degree, with MDG+ that aim to ensure gender equality
approaches to achieving goals in MDG+ and the National
and environmental sustainability (see Figure 1).
Projects vary.
The National Projects and MDG+, however, focus their
The National Projects, in contrast to MDG+, are a direct
efforts on people with different income levels.
extension of government policy heavily supported by the
MDG+ aim to raise incomes for the poorest population
federal budget. The implementation of the National
groups, such as families with many children, the unem-
Projects builds on the existing system of government
ployed, the disabled, etc. At the same time, the National
departments and institutions and is closely tied to the
FIGURE 1. Conformity of the National Projects and MDG+ goals
National Projects
Education Public Health
Poverty
Reduction
Education
M
D
G
Gender
Equality
Public Health
Environment
Global
Partnership
8
Affordable Agricultural
Housing Development
MILLENNIUM DEVELOPMENT GOALS AND NATIONAL PROJECTS: COMMON AND SPECIFIC FEATURES
MDG+ takes a long-term view toward
improving people’s quality of life, whereas
the National Projects look only two years
into the future. This difference explains
why the approaches to achieving goals
in MDG+ and the National Projects
are distinct.
framework of the National Projects, poverty reduction is seen
as a consequence of increased access to resources for
education, housing, and public health. Additionally,
the projects include measures aimed at increasing salaries
and creating new jobs, both of which would improve
the situation of the working poor.
Population groups to benefit from poverty
reduction measures. MDG+ concept uses a selective
management of budgetary resources. As a result, the
approach in defining population coverage with poverty
means of assessment in MDG+ and the National Projects
reduction measures. The MDG+ stipulate that socially
are generally different. The indicators for the National
vulnerable groups should be the main recipients of
Projects are based mostly on expenditures, while those of
assistance, based on the overlap of criteria such as income
MDG+ are based on outcomes – the real effects following
levels, socio-demographics, and place of residence (see
implementation (see Table 1).
Figure 2). By way of contrast, the National Projects focus
Despite their conceptual differences, the overlap in
more on increasing access to resources for broad segments
ultimate goals allows for the use of MDG+ in strengthening
of the population rather than the poverty reduction
the National Projects. The concept of MDG+ can serve
among specific risk groups.
as a foundation for further expansion of the scope
of planning in the National Projects. MDG+ can contribute
BOX 4
to adjustments in existing approaches, or the adoption
ECONOMIC GROWTH AND POVERTY REDUCTION IN
RUSSIA
of alternatives, as well as the improvement of the set
overall efficiency.
1.3. Poverty reduction in the context of MDG+
and the National Projects
Approaches to poverty reduction in MDG+ and the
Economic growth in Russia is not oriented towards eliminating poverty. According to ICSS estimates, in 2005 the
increase in real disposable income among 90 percent of the
country’s population, even taking into account social transfers,
was lower than the average growth in income in the economy
taken as a whole. Those whose incomes increased least of all
included not only underprivileged citizens, but members of the
middle class. As a result, poverty conservation and consolidation
of social inequality occurred against a background of overall
income growth.
National Projects. MDG+ identify as a top priority
INCOME DYNAMICS
the reduction of extreme poverty among non-marginal
30%
7,9
population groups. MDG+ simultaneously focus on indirect
Benefits Granted in 2004 (right scale)
means of reducing poverty, such as increased access
population groups.
In contrast to MDG+, the National Projects do not specify
the eradication of poverty as a separate goal. Within the
A more precise MDG+ definition
for target groups – based on
the overlapping factors of income,
socio-demographics, and geography –
can be incorporated into the National
Projects to improve their implementation
and effectiveness.
Percent to the previous year
to human development resources for socially vulnerable
Increase of Real Disposable Income in 2005
25%
6,9
21,0%
5,9
20%
4,9
Increase of Real Disposable Income
15%
13,3%
14,3%
9,8%
10%
8,4%
7,6%
7,9%
7,9%
8,5%
9,2%
3,77
8,7%
2,9
2,60
2,35
5%
3,9
2,23
1,98
1,92
1,98
1,9
1,70
1,45
1,00
0%
Benefits (percentage of volume for the income group I)
of National Project indicators that are used in assessing
0,9
I
II
III
IV
V
VI
VII
VIII
IX
X
Incomes Below Subsistence Line
Source: ICSS estimates based on the Household Budget Survey, 2005
9
The effectiveness of social programmes can be
BOX 5
POTENTIAL OF THE NATIONAL AGRICULTURAL
DEVELOPMENT PROJECT IN REDUCING POVERTY
measured with regard to the conditions facing socially
The National Project aims to create jobs in agriculture,
increase access to credit resources, and provide young rural
professionals with housing in an attempt to reduce poverty
in rural areas. The National Agricultural Development Project
provides an example of the impact of socio-economic policies on
poverty reduction in population groups identified by territory (in
this case, rural areas). Advancements in the breeding of livestock, as one of the National Project measures, create conditions
for reducing unemployment and raising incomes. Increased
access to credit resources for farms creates conditions for the
development of small agribusinesses. Housing provisions aimed
at improving the living conditions of more than 30,000 young
rural families. This measure is intended to reinvigorate agriculture through skilled personnel as an important contributor to
growth in productivity and an increase of the well-being of the
rural population.
Positive changes linked to the National Project could become a sustainable factor in the reduction of rural poverty if they are backed
up by reforms in the agricultural sector and further improvements
in social infrastructure.
vulnerable groups. Therefore, a more precise MDG+
definition of target groups – based on the overlapping
factors of income, socio-demographics, and geography –
can be incorporated into the National Projects to improve
their implementation and effectiveness.
The situation of socially vulnerable groups as an
indicator of MDG+ achievement. The monitoring of socially vulnerable population groups, identified on the basis
of overlap in poverty profiles, can be used more widely
in Russia in assessing the effectiveness of the National
Projects from the standpoint of MDG+ achievement.
Obtaining data on socially vulnerable groups
may require changes to the statistical reporting system,
as well as the development of new means of interaction
with specific population groups in order to better collect
data.
FIGURE 2 Overlap of poverty profiles
Income Distribution
Income per
capita
Poverty line
Poverty in t erms
of income
Low income
group
100%
Population
Socially
vulnerable groups
Social and demographic
profile of the poverty:
• Retired
• Disabled
• Mothers
• Children
• Large families
• Incomplete families
• Other groups
Territorial profile of the poverty:
Rural area, small towns, less developed territories
10
II. THE NATIONAL PROJECT “EDUCATION” AND ACHIEVEMENT OF MDG+
The measures of the National Project for
updating the content of education and
improving compliance of education with
labour market requirements coincide most
fully with the approaches to educational
development in MDG+.
2.1. Comparing goals of the National Project
“Education” with MDG+
MDG+ approaches to educational development.
MDG+ view educational development is seen from
a position both of economic importance (in the
strengthening of human potential, and an increase in
competitiveness) and a condition for human development.
and residents from various regions throughout
In connection with the above, the main directions of the
the country.
development of the educational sphere in the context of
The MDG+ also contain the separate goal of overcoming
MDG+ are the following:
gender inequality at all levels of education, something that,
•
bolstering human potential by updating educational
in Russia, signifies a need for raising the level of education
content and reorienting it to meet the requirements of
among males.
the labour market;
•
Educational development within the framework of
increasing access to education at various levels
the National Project. The National Project “Education” and
for socially vulnerable population groups
the MDG+ gives proper weigh to as well as the economic and
FIGURE 3. Goals of the National Project “Education” and achievement of MDG+
MAIN ELEMENTS OF THE NATIONAL PROJECT “EDUCATION“
MDG+
Best patterns
of national education
National
Modern education universities
and business
technologies
schools
Vocational
Pedagogic work
education
in the
in schools
army
“ Rural school
bus“ project
Increase Access to Education
Involve vulnerable groups of the
population in education
Additional
payment for
class
supervision
Support of
talented youth
Ensure participation in pre -school
education of children from low-income
families and children residing in rural
areas
Vocational
education
centres in
military units
School buses
for rural areas
Reduce the gap in funding and
access to education between and
within regions
Update the content of education
towards developing practical skills
and application of knowledge
Improve compliance of vocational
education with the modern economic
environment and labour market
requirements
Encouragement
of best teachers
Government
support for
schools and
universities
introducing
innovative
education
programs
Computers and
Opening of
Internet for
two
schools and
universities
universities,
and two
creation of
business
education
schools
resources in
the Internet
Ensure Gender Equality
Eliminate gender inequality in primary
and secondary education
directly
coincide
indirectly
coincide
11
THE NATIONAL PROJECT “EDUCATION” AND ACHIEVEMENT OF MDG+
A broader access to education
for fixed-period and contract military
personnel will indirectly promote gender
equality in education.
the success of the National Project “Education” are
as follows:
•
a possible increase in the gap in funding among
educational institutions;
•
a possible imbalance in the provision of resources
social aspects of education. The measures of the National
necessary for the successful implementation of specific
Project for updating the content of education and improving
project initiatives.
compliance of education with labour market requirements
The chances of an increase in the gap in funding among
coincide most fully with the approaches to educational
educational institutions are higher when priority is given to
development in MDG+ (see Figure 3).
the most innovative schools and universities. Such an
In the framework of the National Project the updating of
approach runs the risk of allocating additional funds
educational content is fulfilled through public support to
from the federal budget for a limited number of the most
schools and universities introducing innovative programmes
successful educational institutions, which tend to be situated
and developing modern approaches, supplying schools with
in the more economically advanced regions of the country.
computers and designing educational Internet resources.
It can be assumed that encouragement of the best teachers
Additionally, educational content naturally will be updated
also will apply primarily to advanced schools in towns and
through the establishment of national universities in Siberian
cities, and not in rural areas. Consequently, discrepancies
and South Federal Districts, as well as the opening
in logistical support and teachers’ salaries could lead to gaps
of business schools in Moscow and St. Petersburg.
in the quality of instruction.
Elements of the National Project “Education” (particularly
The measures of the National Project concerning
the provision of material incentives for the best teachers)
distance learning and provision of computers and access
also can be viewed as one of the important conditions
to the Internet are heavily dependent on the proportions
necessary for updating curricula and raising the quality of
of the support earmarked for accessibility of education
instruction.
and the updating of educational content. For example,
Several aspects of the National Project indirectly are
in areas where teachers are neither computer literate,
conducive to increasing access to education for socially
nor well-versed in modern technologies, the mere supply
vulnerable population groups. The awarding of grants to
of computers could fall short of producing the expected
talented young people, among other things, potentially could
results in information technologies.
increase the possibilities of getting an education for young
The above risks can be eliminated by taking into
people from underprivileged families, or those living in
consideration the current status of educational institutions
remote regions. The introduction of supplementary payments
and the peculiarities of the education sphere by region,
for class supervision, with the aim of raising the level of work
during the phase of competitive selection. In case of a short-
at schools, might also have a positive effect on children from
fall in funding, provision of additional resources on training,
socially vulnerable families.
renovation and modern equipment would be required.
Measures of the National Project “Education” also aim to
develop a system of vocational training in the army, as well
as to purchase school buses for rural areas. These measures
target specific population groups and reflect MDG+’s
orientation on education accessibility for those who,
2.2. Analysis of indicators of education
development in the National Project
“Education” and MDG+
for various reasons, have limited possibilities to study.
It should be noted that broader access to education for
fixed-period and contract military personnel will indirectly
in education development. To monitor the results
promote gender equality in education.
of the National Project “Education” expenditure-based
Risks inherent to the National Project “Education”
may delay satisfying MDG+. The most substantial risks to
12
Expenditure-based and outcome-based indicators
indicators are mainly used, unlike MDG+, which propose
outcome-based indicators such as increased knowledge
THE NATIONAL PROJECT “EDUCATION” AND ACHIEVEMENT OF MDG+
To update the
content of
education
towards
developing
practical
skills and
application
of knowledge
Outcome-Based
Indicators
ExpenditureBased Indicators
Example:
NP
• Number of universities and
schools introducing innovative
education
• Number of schools having access
to Internet
• Number of students at
universities and business schools
• Number of distance programmes
purchased
MDG+
• Improvement of Russia’s rating
in PISA and TIMS assessment
• The proportion of unemployed
in the total number
of vocational school leavers
and graduates
• The average duration of job
search for people aged 16-24
FIGURE 4. Indicators for updating the content of education, and improving compliance of vocational
education with the labour market requirements, in MDG+ and the National Project “Education”
among students, the average duration of job search by
university graduates, etc. The National Project indicators are
mainly focused on the funds to be allocated in connection
with the facilities to be funded (see Figure 4).
MDG+ indicators can serve as long-term
guidelines for the assessment of the
National Project activities aimed
at updating the content of education.
Consequently, the attainment of the goals set within the
framework of the National Project “Education” is expressed
MDG+ indicators as long-term guidelines for
by the full allocation of funds to the required number
assessing National Project activities. MDG+ indicators
of facilities. For example, the indicator characterizing
can serve as long-term guidelines for the assessment
the development of distance learning is represented by the
of the National Project activities aimed at updating the
expenditure of 300 million roubles on the purchase of 100
content of education. The use of such indicators would
distance-learning programmes in 2006–2007.
allow for the monitoring of changes in the quality
Efforts to incorporate outcome-based indicators
of education, and the relevance of these changes to the
in the National Project “Education” would face certain
labour market. The indicators also would facilitate
difficulties. Firstly, the relatively short duration of the
comparisons in educational development internationally.
project makes it difficult to assess qualitative changes
For instance, MDG+ indicators such as the international
in the targeted spheres of education. Secondly, further
PISA and TIMS assessment of both student
difficulties are likely to be encountered because of the lag
knowledge, and the duration of job searches
between the time funds are allocated and the time
by people between the ages of 16 and 24,
a qualitative result is obtained.
can be used to measure the success of the National
Project “Education” in raising teachers’ wages,
The National Project “Education” primarily
uses expenditure-based indicators, unlike
MDG+, which use outcome-based
indicators – such as increased knowledge
among students, the average duration
of job search by university graduates, etc.
disseminating innovative education technologies, and
improving the material-technical bases of various
educational institutions. In this process, however,
it is necessary to take into consideration the time lag
between the moment of funding and the completion
of project activities.
13
THE NATIONAL PROJECT “EDUCATION” AND ACHIEVEMENT OF MDG+
2.3. Recommendations on the possible
enhancement of the National Project
“Education” with regard to MDG+
The National Project “Education”
can be augmented with such goals
as development of pre-school education
and modernization of the system
of primary and specialized secondary
vocational education.
Incorporating additional goals into the National
Project “Education” would result in the broader success
of MDG+. The Millennium Development Goals adapted for
Russia can serve as a strategic guideline for the National
of pre-school education assumes heightened importance
Project “Education” in regard to long-term goals
in light of government efforts to stimulate the birthrate
for education development and access to education for
in Russia.
socially vulnerable groups. To this end the National Project
•
The modernization of the system of primary
“Education” can be augmented with the following goals:
and specialized secondary vocational education is
•
The development of pre-school education for children
required in order to meet the needs of the labour market.
from low-income families and children living in rural
In the current phase of implementation of the National
areas. The importance of this goal is buttressed by the
Project “Education,” this goal is partially met through the
need to provide equal opportunities for the development
ongoing efforts aimed at creating vocational education
of human capital. Moreover, the development
centres in the military forces.
Securing access to education for children from socially
BOX 6
SHORTAGE OF SKILLED PROFESSIONALS
IN THE RUSSIAN ECONOMY
Over the past few years, the problem stemming from a shortage
of skilled professionals has grown in importance from the standpoint of economic development. The problem manifests itself both
in an insufficient level of training, and a chasm between the skills
of graduates and the needs of the labour market. The shortage of
qualified workers is especially acute in industry, where the demand
for skilled technicians and engineers far surpasses the supply.
Surveys show that more than 50 percent of employers cite a drop
in the level of education among graduates of primary and secondary specialized schools over the past ten years; only 10 percent of
employers noted an improvement in the quality of training3.
Deterioration of the quality of vocational education is exhibited by
the fact that their knowledge and skills do not meet the requirements of the labour market. An outdated material-technical base,
coupled with an often substandard level of training among teachers, result in a situation whereby students are taught in accordance
with outdated methodologies, and the knowledge they acquire
turns out to be inapplicable in practice.
A lack of continuity between the skills of graduates and the
requirements of the labour market has become increasingly obvious. Some 70 percent of employers point to a shortage of employees possessing the requisite training and skills4.
Measures aimed at modernizing the primary and specialized secondary vocational education require better collaboration between
the government and the business community. One of the possible
solutions might be the establishment of regional centres for training the types of professionals who are in the shortest supply.
3
4
14
vulnerable population groups could become one of the
avenues by which aspects of MDG+ are incorporated into
the current goals of the National Project “Education”.
This goal could receive special attention, for instance, as part
of the government programmes providing grants to talented
young people.
The incorporation of additional goals into the National
Project “Education“ would promote the creation of
a comprehensive set of measures within the framework of
the National Project that would comply with the main
strategic directions for reforming the educational system.
Measures aimed at improved logistical support for
educational institutions should take into consideration,
among other things, the prospects of reorganizing
the network of educational institutions. Supplemental income
for teachers, moreover, should not eliminate the need for
changes to the remuneration system in general.
Expansion of the set of indicators of the National
Project “Education” with regard to MDG+ would result
in improvements in monitoring and overall efficiency.
The current expenditure-based indicators could
be supplemented with outcome-based indicators, including
those dealing with the accessibility of various forms
of education for socially vulnerable groups. The final results
N. Kovaleva, Economics of Education in Russia: Monitoring Results, Narodnoye Obrazovaniye # 10, 2005, p.33
All-Russia monitoring of the social-and-labour sphere, Analytical Records based on 2003 results, Moscow, Sotsionomia, 2004, p.152
THE NATIONAL PROJECT “EDUCATION” AND ACHIEVEMENT OF MDG+
of the National Project may be assessed on the basis of,
among other things, the following indicators:
•
the share of fixed-period servicemen who obtained
primary vocational education in the army;
•
the percentage of contract servicemen who enrolled in
higher education institutions;
•
Securing access to education
for children from socially vulnerable
population groups could become
one of the avenues by which aspects
of MDG+ are incorporated into the current
goals of the National Project “Education.”
the share of rural schools provided with their own
vehicles;
•
the share of rural schoolchildren provided with
transportation to and from school;
•
the share of schoolchildren and college students with
state-of-the-art computers;
•
the percentage of educational institutions with access to
the Internet;
•
the availability of distance learning programmes for
schoolchildren, college students, and adults between
24 and 60.
The assessment of the dynamics of these indicators
requires data on their current values, as well as mechanisms
for tracking any changes. Therefore, the expansion of the set
of indicators could also require improved depth of education
statistics.
15
III. THE NATIONAL PROJECT “HEALTH” AND REALIZING MDG+
3.1. Compliance of MDG+ and the goals
of the National Project “Health”
The HIV epidemic is not driving the decline in life
expectancy, yet the increased spread of HIV is the cause for
alarm. According to official statistics, the HIV incidence rate
MDG+ and the goals of the National Project “Health”.
in 2005 was twice as high as the rate recorded in 2001,
Among the most vital issues addressed by the MDG+
the country’s previous high6.
is the low life expectancy caused by high levels of avoidable
The National Project “Health” is aimed at curbing negative
deaths from non-infectious diseases, and increasing spread
trends in life expectancy by improving primary care and building
of HIV and AIDS.
medical centres that are supplied with modern equipment.
The unfavourable dynamics of life expectancy
The successful implementation of the most substantial
in Russia are determined by a high level of mortality
aspects of the National Project “Health” also would be
due to cardiovascular diseases and exogenous causes
conducive to achieving MDG+. The measures of the National
of death, specifically among men of working age.
Project on providing medical care during pregnancy and
As a result, the mortality of males of working age exceeds
delivery, as well as medical screening for newborns, would
the level for European Union countries by 4,5 times .
help attain the MDG+ related to reducing maternal and child
5
FIGURE 5. Goals of the National Project “Health” and achievement of MDG+
MAIN ELEMENTS OF THE NATIONAL PROJECT “HEALTH“
Ensuring highly specialized
medical services
Strengthening of primary healthcare
MDG+
Increase life expectancy and
reduce mortality from major
causes
Clinical
examination
Reduce maternal mortality
Medical care
in pregnancy
and delivery
period
Reduce the mortality of
children under five
Newborn
screening
tests
Promote changeover in society to
a healthier life/style
Halt and begin to reverse the
spread of HIV and AIDS
HIV
prevention
Halt the spread of tuberculosis
(TB ) and other socially -based
infectious diseases
Hepatitis B
and C
prevention
directly
coincide
5
6
16
Opening of new centres
,
increase of services provision
Wage
Training/
retraining of increase for
primary-care
primary-care
and
physicians/ emergency
GPs
workers
Procurement
of equipment
for healthcare
organizations
Immunization
indirectly
coincide
Federal Target Program “Health of the working-age population in Russia for 2004-2015”, Analytic Bulletin of Federation Council of Russian Federation, №24 (217), 2003
Country Report of the Russian Federation on the Implementation of the Declaration of Commitment on HIV/AIDS, January-December 2005, P.4
The successful implementation of the most
substantial aspects of the National Project
“Health” would be conducive to achieving
MDG+.
tation of the National Project “Health” include the potential
inability to meet goals because of a lack of skilled professionals and an insufficient focus on disease prevention.
The lack of highly skilled personnel may reduce the
benefits of the construction of new medical centres, and the
mortality. Measures aimed at preventing HIV, as well as
purchase of new equipment. Additionally, there are
diagnostics and treatment of HIV and AIDS, correspond to the
substantial gaps in the incomes of general practitioners and
MDG+ goal of halting the spread of HIV and AIDS; the pre-
specialists, which could lead to a reduction in the number of
vention of hepatitis B and C, coupled with an increase in the
the former. To reduce the risk of a shortage of highly skilled
scope of immunizations, are consistent with the MDG+ goal
medical workers, the payment system in the public health
of combating socially-rooted infectious diseases (see Figure 5).
sector should be amended in favor of raising wages across
In addition to the measures that coincide directly with
MDG+ in the sphere of public health, the National Project
provides for a wide range of activities that also will help
promote MDG+. The activities within the framework of the
National Projects are intended to address the country’s more
vital public health issues, such as the shortage of highly-skilled
professionals in outpatient clinics and hospitals, low wages,
outdated medical equipment, and lack of ambulances.
The National Project “Health” aims to train personnel to better
provide primary care, raise wages for medical workers, and
replace outdated equipment for outpatient clinics, hospitals,
medical-obstetrical offices, and the emergency services.
By implementing these measures, the government will improve
the quality of care and shift the emphasis in medical treatment
from traditional in-patient services to out-patient services.
Unlike MDG+, the National Project
“Health” attaches secondary importance
to preventive measures and the adoption
by society of healthier lifestyles.
Unlike MDG+, the National Project “Health” attaches
secondary importance to preventive measures and the adoption
by society of healthier lifestyles. Those preventive measures that
are outlined within the framework of the National Project are
mostly related to providing greater health screening and immunization, and not addressing the risk factors that cause diseases.
At the same time, international experience shows that
healthier lifestyles, and preventive measures that address risk
factors, can contribute substantially to reducing mortality.
Risks involved in the implementation of the National
Project “Health”. The main risks involved in the implemen-
BOX 7
HALTING THE SPREAD OF HIV WITHIN
THE FRAMEWORK OF THE NATIONAL PROJECT “HEALTH”
Spending on the prevention of HIV and AIDS within the framework
of the National Project “Health” is 17 times higher than the amount
of funds allocated for the same purpose from the federal budget in
2005 (3.1 billion roubles, and 187 million roubles, respectively). The
National Project is only one of the prongs of the government’s policy to combat the spread of HIV; most of the measures for HIV prevention fall within the Federal Target Program, “Anti-HIV and AIDS.”
This increase in funding will result in better treatment for HIVinfected patients, including antiretroviral therapies, and better
means for diagnosing people with HIV (as well as monitoring the
effectiveness of treatment). Additionally, the National Project
aims to help prevent the spread of HIV among young people and
members of socially vulnerable population groups.
A vital goal of MDG+ is the reduction of the incidence of HIV and
AIDS, and near-universal access to comprehensive programmes
for HIV prevention, treatment, and care. This goal is part of the
resolution of the 60th UN General Assembly, passed in 2006, that
must be achieved by 2010.
Addressing this issue will require the establishment in Russia of a
coordinating body with broad powers, and the adoption of a
national strategy to combat HIV and AIDS (with the means for
regular monitoring and assessment).
The development of a common national strategy, the identification
of priorities, and the setting down of concrete goals in regard to
MDG+ would allow for, among other things, the formulation of a
list of prospective measures that could be implemented with higher
efficiency within the framework of the National Project “Health.”
One of the aspects of the National Project that is different from
any other instrument of public policy is the wide availability of
information about its main tenets, and the stages of its implementation among the population. High-ranking public officials consistently refer to the project in their speeches. A special website is
dedicated to the project, and conferences and other events are
regularly held to further draw attention to the National Projects.
In this regard the prospective scope of the National Project “Health”
could entail raising public awareness and undertaking a broad information campaign contributing to stopping the HIV epidemic.
17
THE NATIONAL PROJECT “HEALTH” AND REALIZING MDG+
the board. Moreover, the training and retraining of health
care professionals should be undertaken more regularly.
3.2. Public health indicators in the National
Project “Health” and MDG+
Strengthening the preventive component of healthcare is
based on a growing commitment in the use of preventative
MDG+ indicators as long-term guidelines for assessing
measures among primary-care professionals. Equal access
National Project initiatives. Historically the development of a
to integrated preventative and treatment services for
system of indicators reflecting the influence of public policy on the
all population groups, including the most vulnerable
life expectancy of the population has been a complicated issue.
(i.e. users of intravenous drugs), is of special importance in
The health of the population depends on numerous factors, many
combating the spread of socially-rooted infectious diseases.
of which cannot be directly influenced by the healthcare system.
The shorter the period of time allotted for analysis, the more
BOX 8
IMPORTANCE OF DISEASE PREVENTION
IN REDUCING THE MAJOR CAUSES OF DEATH
difficult it is to assess the effect of policies on the nation’s health.
The National Project “Health” will be implemented over
the course of two years. Indicators based on expenditure are
In contrast to the situations in many poor countries, where low life
expectancy is primarily due to high rates of infant and child mortality, the prevailing downward trends in Russia are mostly attributable to premature deaths among men of working age. More
than half of 20-year-oldmen in Russia will die before retirement.
This is the highest rate in the world.
Mortality in Russia can be reduced by taking preventive measures
and adopting healthier lifestyles. In doing so, however, it is important to take into consideration not only mortality rates as a reliable
source of data, as they do not reflect the impact of the entire range
of diseases on people’s lives. It also is important to pay attention to
indicators such as quality of life, and healthy life expectancy.
Discussions about the causes of the deterioration of the general
health in Russia provide no single answer to the question “What
can be done to halt the unfavourable trends in mortality?”. While
we must recognize the importance of continuing these discussions, we also should note that potential steps toward reversing
this trend are imposing higher prices on alcohol and Russia’s accession to the WHO Framework Convention to Combat Smoking.
Although such steps are not popular, they are necessary.
Almost 70 percent of adult males in Russia smoke. Smoking reduces life
expectancy by an average of 10 years. Alcohol also does substantial
harm to the health of Russians: at least 40 percent of the deaths
among working-age males may be attributed directly to alcohol abuse.
Reducing such risks, getting proper nutrition, and staying physically fit also can contribute positively to overcoming crises in health.
On the whole, the measures that can be implemented to convert
the population to a healthier lifestyle are well-known, and rather
simple. At the same time, behavioural theories backed up by science assert that informing people about risk factors is only a first
step in changing behaviour.
The success of public policy in the areas of disease prevention and
promoting healthier lifestyles will depend to a considerable degree
on their acceptance by the general public, as well as by members
of the business community who are interested in improving
employees’ health, and ability to work.
K.D. Danishevsky
foremost among those currently used to gauge its success.
Expenditure-based indicators are not suitable, though, for
estimating the potential impact of the proposed measures on
the health of the population. For example, the effectiveness
of health-screening is assessed in accordance with the
allocation of additional funds. Such an approach does not
take into account the availability of health screening for
population groups at risk of specific diseases.
Indicators based on expenditure are foremost
among those currently used to gauge
the success of the National Project “Health”.
Expenditure-based indicators are not suitable,
though, for estimating the potential impact
of the proposed measures on the health
status of the population.
MDG+ indicators must be reached by 2015. These indicators
(such as the rates of mortality and illness) are orientated toward
the overall effectiveness of the healthcare system and the effectiveness of preventive measures on high risk behaviours. Similar
indicators are laid out in the National Project “Health,” but they
are not tracked by the existing monitoring system. For instance, a
target indicator for the prevention of hepatitis B and C is a threefold reduction in the rate of infection. However, effectiveness
currently is measured only from the standpoint of allocation of
additional funds for the purchase of equipment and medicines.
In the long run the outcome-based MDG+ indicators,
combined with international experience in assessing the
efficiency of national healthcare systems7,8, can be used in
Murray C.J.L., Frenk J. A WHO Framework for Health System Performance Assessment. Global Programme on Evidence for Health Policy. World Health
Organization. Discussion Paper Series No. 6.
8
Wismar М., Ernst К., Srivastava D. and Busse R. Health Targets and Good Governance. European Observatory on Health Systems and Policies (draft).
7
18
THE NATIONAL PROJECT “HEALTH” AND REALIZING MDG+
Expenditure
Based Indicators
Example:
HIV
prevention
NP
• Number of treated people living
with HIV
• Budget expenditures
MDG+
Outcome Based
Indicators
• Decrease in number of people
living with HIV
• Number of new cases of HIV infection registered within the course of a year
• Number of HIV infected among pregnant women aged 15-24 years
• Frequency of use of condoms
• Percentage of persons aged 15-24 with correct knowledge on HIV and AIDS
• The percentage of people in late phase of the disease who receive adequate
therapy
FIGURE 6. Healthcare indicators in the National Project “Health” and MDG+
conjunction with expenditure-based indicators to better
toward healthy lifestyles. The successful implementation
assess the effectiveness of the National Project.
of these measures could potentially reduce illness
Indicators of the population coverage by
preventive measures. Unlike MDG+, the indicators for
and preventable deaths.
The adoption of additional goals within the framework
judging the effectiveness of preventive measures in the
of the National Project will require not only a broader list of
National Project “Health” are largely related to the costs of
indicators and the creation of special programmes, but
treating patients and/or the services rendered. One of the
changes to the payment system for medical workers.
possible ways to enhance the National Project, based on
For example, primary-care physicians might also receive
the experiences of MDG+, is by expanding the list
additional payments for stressing the value of prevention
of target indicators in order to more accurately assess the
with their patients.
effectiveness of preventative measures.
For example, MDG+ help to determine the effectiveness of
HIV prevention through an indicator that gauges the percentage
of young people (from 15 to 24) with correct knowledge about
HIV/AIDS (see Figure 6). Within the framework of the National
The main thrusts of the National Project
“Health”, with respect to MDG+, can be
seen in better preventative primary care
and a reorientation of the population
toward healthy lifestyles.
Project, however, indicators of HIV prevention are limited to the
number of people with HIV who have been treated, the amount
Expanding the set of indicators of the National
of money spent on treatment, and the number of new HIV
Project “Health” with regard to MDG+.
infections. The use of such indicators is indispensable, yet it is
The development of a set of indicators for the National
insufficient for high-quality monitoring. For an all-round assess-
Project “Health” based on the experience of MDG+ might
ment of the measures taken to prevent HIV within the framework
consist of introducing indicators that measure short- and
of the National Project “Health,” it is worthwhile to expand the list
long-term effectiveness in addition to those that already
of indicators to include those suggested by MDG+.
focus on spending and treatment.
Project indicators should promote greater control over the
quality of medical services. For example, an indicator used
3.3. Recommendations on possible
enhancement of the National Project
“Health” with regard to MDG+
to assess the response time for emergencies (from the time
a call is received to the time an ambulance arrives at
a specified location) might be used in conjunction with an
indicator that links emergency medical care to the availability
Possible expansion of the National Project “Health”
of ambulances. A wider application of indicators that
in the context of MDG+. The main thrusts of the National
characterize the quality of medical services would further
Project “Health”, with respect to MDG+, can be seen in better
permit the evaluation of the impact of the National Project
preventive primary care and a reorientation of the population
on the well-being of the population.
19
IV. MEASURES OF DEMOGRAPHIC POLICY IN THE CONTEXT
OF NATIONAL PROJECTS AND MDG+
4.1. An improvement in demographics as a goal
of the National Projects and MDG+
demographic trends continue, Russia’s population will fall by
30 percent over the next 50 years10. Today the decline in
population, especially among working-age men and women,
Demographic situation in Russia. The decline in
is seen as one of the greatest risks to the country’s security
population is an extremely critical problem for Russia.
and socio-economic growth.
A steady fall in population can be observed since 1992,
The most pressing issues, in light of the current
as a result of a low birthrates and high mortality, especially
demographic situation, are the reduction of mortality
among working-age males (see Figure 7). Over the past few
among working-age people, stimulation of birthrate
years the number of deaths has exceeded the number of
and adoption of an effective migration policy. In the long
births annually by 800,000 to 900,000. Moreover, net
run, the achievement of these three objectives will be
migration to Russia – which helps offset the drop in population –
a prerequisite for sustainable socio-economic development
also has been on the decline. In 1994, when the inflow of
of Russia.
migrants was at its highest, the new arrivals offset 93 percent
Approaches to stabilizing the demographic situation.
of the natural decrease in population. In 2004, however,
The Concept of the Demographic Development of the
international migration compensated only 5 percent of the
Russian Federation till 2015, a policy paper from 2001,
decline. (Migration grew slightly in 2005, now offsetting
updated in 2006, that reflects the official position declares
12.7 percent of the natural decrease in population .)
the goal of gradual stabilization of the country’s population
9
By early 2006 the country’s population numbers fell to
142.7 million, six million less than in 1992. If the current
and formulates demographic policy in the areas of migration
health and family.
FIGURE 7. Demographic situation in Russia
20
15
per 1000 of population
10
5
0
-5
1970
1975
1980
1985
1990
1995
2000
Births
Deaths
Natural Increase (Decrease)
-10
9
10
20
ICSS estimates based on Federal agency on state statistics’ data
Population of Russia in 2002. Tenth annual demographic report. Ed. by A.G. Vishnevsky, M. 2004, P. 180
2005
The most pressing issues, in light
of the current demographic situation,
are the reduction of mortality among
working-age people, the stimulation
of the birthrate and the adoption of
an effective migration policy.
medical staff at prenatal clinics and maternity wards in a bid
to encourage better care.
By and large, the National Project “Health” and MDG+
are similar in their approaches in improving the demographic
situation. Both programmes would improve the state
of people’s health, increase life expectancy, and reduce
maternal and child mortality among.
The improvement of the demographic situation requires
a migration policy aimed at attracting specific categories
4.2. Stimulating birthrate –
a new national project?
of people, first and foremost Russians living abroad.
An inflow of migrants will slow down the decline in
population and provide the economy with extra labour
force. An efficient approach to the selection and
Proposals of the President of the Russian Federation
settlement of migrants, coupled with provisions
for stimulating birthrate. The proposals for stimulating the
that simplify social adaptation for them and their families,
birthrate that were emphasized by the President in his 2006
would reverse brain drain and promote the development
annual address to the Federal Assembly could provide
of human capital.
a foundation for a new National Project. Such an undertaking
The National Project “Health” represents one of the steps
toward solving these demographic problems. The aspect of
would supplement the National Project “Health” addressing
the issue of premature death.
The measures proposed by the President are as follows:
the National Project aimed at reducing avoidable deaths is
based on an increase in the effectiveness of the healthcare
•
increasing family benefits to 1,500 roubles for the first child,
system. Even in the short term, the proposed measures for
and 3,000 roubles for the second child, for non-working
improving primary care are expected to play a positive role in
mothers over the first 18 months; family benefits for work-
the state of people’s health. However, if the conditions persist
ing mothers will be equal to 40 percent of their salaries (but
that ultimately result in premature death, these measures
not exceeding 6,000 roubles) over the same time period;
likely will not have a substantial impact on life expectancy.
The National Project “Health” represents
one of the steps toward solving the
demographic problems. The aspect
of the National Project aimed at reducing
avoidable deaths is based on an increase
in the effectiveness of the healthcare
system.
•
partial reimbursement of the costs of attending
pre-school: 20 percent of the average cost for the first
child, 50 percent for the second child, and 70 percent
for the third child;
•
awarding at least 250,000 roubles to women who give
birth to a second child. This money may be spent when
the child reaches the age of three, and only in the
following capacities: purchasing housing (partially
financed with a mortgage); educating children;
The National Project would provide so-called “delivery
certificates” to mothers, and screening tests for newborns, in
or supplementing mothers’ future pensions.
The primary emphasis of the proposed measures is on
an effort to bolster their health – a sign of the recognition by
increasing monetary benefits and ensuring access to
the state of the importance of maternal and child health.
pre-school education. This approach takes into consideration
After evaluating the early measures proposed to stimulate
the decreasing role of benefits in support provided to
the birthrate the monetary value of “delivery certificates” will
families with children, and the shortage of pre-schools that
be increased in 2007 from 7,000 to 10,000 roubles. A portion
lately has become manifest. For the first time ever, the
of these funds is slated to be used to raise the wages of
proposed measures foresee that the amount of benefits and
21
MEASURES OF DEMOGRAPHIC POLICY IN THE CONTEXT OF NATIONAL PROJECTS AND MDG+
Plans to implement the proposed
measures within the framework
of a separate National Programme
(or Project) allows for the long-term
development of an comprehensive approach
aimed both at empowering women
and stimulating the birthrate.
The shortage of places in Russian pre-schools
is at least 900,000, and growing. At the same time,
the fall in the capacity of kindergartens is
accompanied by an increase in costs, even though
such increases are not always justified by the quality
of services provided.
Referring to the problem of low birthrates
in Russia, the President stressed in his statement
contributions toward pre-school education depend on birth
the strong interest of the Goverment in improving
order (first, second, third child).
the demographic situation. His remarks gave rise to a
Statistics show that the share of family benefits relative
to people’s incomes fell to 0.5 percent in 2004-2005, down
from 1.6 percent in 1996. In general, government spending
experts and the general public.
Plans to implement the proposed measures within
on family benefits amounts to less than 0.3 percent of GDP.
the framework of a separate National Programme (or
(UNICEF recommends spending in a range of 2.5 percent to
Project) allow for the long-term development of an com-
3.5 percent of GDP, depending upon the level of child
prehensive approach aimed both at empowering women,
poverty and the total number of children ).
and stimulating the birthrate. The special status of a
11
BOX 9
INTERNATIONAL EXPERIENCE WITH POLICIES AIMED AT STIMULATING THE BIRTHRATE
The primary tenets of policies intended to increase birthrates can
include the following:
• financial support to families (i.e. family benefits, tax rebates to
families with children, housing subsidies, targeted loans to subcategories of families, and grants for education);
• assistance to working parents (i.e. temporary leave for mothers and
fathers upon the birth of a child, improvement in pre-school education, and special employment privileges for women, such as working
at home, working part-time, and flexible work schedules).
The formulation of demographic policies in the second half of the
20th century involved diversity in principles, theoretical approaches,
and practical measures for supporting families with children. A few
countries, such as France, and parts of Eastern Europe and the former Soviet Union, sought to boost the birthrate and the general
population.
Experts are currently very cautious in judging the effectiveness of
policies aimed at stimulating birthrates. Policy failures often are
attributed to efforts to achieve positive results on the cheap, whereas demographic behaviour only can be influenced by a coordinated
set of steps that are large-scale, and long-term, in nature.
Quantitative assessments were not undertaken to establish the scale
and amount of spending required for such policies to be effective.
However, calculations show that a 25 percent increase in the total
amount of family benefits resulted in a 4-percent increase in total fertility rate, or 0.07 more children12, in industrialized European countries.
The experience of European countries shows that a high level of
spending on, family benefits combined with additional measures of
support to families with children, can be conducive to increasing the
11
12
22
lively discussion about the proposed measures among
birthrate. In countries where the level of government spending on
families was high (more than 2 percent of GDP) throughout the
1980s and 90s (and stretching into the early 2000s), an increase
could be seen in the birthrate; the level of the increase in births subsequently remained steady, or experienced an insignificant drop.
In France, for example, where spending on family benefits constituted 2.85 percent of GDP, there was an increase in the total fertility rate from 1.71 in 1995, to 1.89 in 2003. In Denmark, where assistance to families stands at 3.77 percent of GDP, the total fertility
rate rose from 1.45 in 1985, to 1.76 in 2003. At the same time, in
Spain and Italy, where spending on families with children bottoms
out at less than 1 percent of GDP, the respective indicator remains
the lowest in Europe and was around 1.2 - 1.3.
An analysis of family policy in Europe has shown that allowances
play a positive role in stimulating the birthrate in instances where a
set of measures provides for substantial support for families with
children.
The experience of Sweden confirms that one of the most important
factors influencing the birthrate is the opportunity for women to
combine work with raising children. In the 1980s, the Swedish
approach to ensuring gender equality in incomes had a positive
impact on the birthrate. About 83 percent of working-age women
in Sweden were employed and the employment among women was
one of the highest in the world. Thus, the increase in the birthrate
was due to a combination of factors: a favourable economic situation, a low rate of unemployment, improved working conditions,
and family policy focused on working mothers and fathers.
V.V. Yelizarov
Family benefits: international standards and international experience, Moscow, 2003, P. 73-74
A.H.Gauthier, J.Hatzuis. Family Benefit and Fertility: an Econometric Analysis. Population Studies, N° 51, 1997
MEASURES OF DEMOGRAPHIC POLICY IN THE CONTEXT OF NATIONAL PROJECTS AND MDG+
BOX 10
THE ROLE OF THE NATIONAL PROJECT
“AFFORDABLE AND COMFORTABLE HOUSING
FOR RUSSIAN CITIZENS” IN STIMULATING THE BIRTHRATE
The expansion of the National Project on providing young families
with affordable housing also will influence the program aimed at
stimulating the birthrate. One of the aspects of the National
Project on housing entails the granting of subsidies (at least 35
percent of the cost of the average accommodation in the respective housing markets) to young couples without children. A subsidy
of at least 40 percent would be extended to families with one or
more children. Currently, subsidies stipulated for the purchase of
housing are aimed at improving the living conditions of some 30
percent of young families in need.
However, the granting of subsidies is not fully consistent with the
goal of stimulating the birthrate. For example, the birth of a second child (and subsequent children) does not constitute grounds
for granting families additional housing subsidies. The number of
potential programme participants is limited, too, because young
families are defined as those in which the parents are less than 30
years old.
The birthrate could be stimulated within the framework of the
measures of the National Project “Affordable and Comfortable
Housing for Russian Citizens” by increasing this age limit to 35
years, and granting additional subsidies in the event of the birth of
a second child, and of subsequent children.
4.3. Recommendations on enhancing
the proposed measures for stimulating
the birthrate with regard to MDG+
Additional measures aimed at stimulating the
birthrate with regard to MDG+. References to the available
international experience could prove useful when
formulating a National Program, or Project, aimed
at stimulating the birthrate. In this context, the MDG+
concept allows, inter alia, for the introduction of
amendments that would strengthen pre-schools and ensure
gender equality in the labour market.
Measures to reduce discrimination of women in the
labour market should focus on shrinking the gap in incomes,
providing employment guarantees, and ensuring
the payment of a significant part of salary in case
of pregnancy and the birth of a child.
MDG+ view the strengthening of pre-school education as
necessary for providing equal opportunities to children from
families of various social groups. In the context of measures
aimed at stimulating the birthrate, access to pre-school
education becomes an important factor in enabling women
National Project focused on the demographic issues
to work and, therefore, in preserving the requisite levels
would ensure additional means of political control over
of income.
decision-making, and improved interaction among the
federal and regional governments.
Conditions conducive to the successful
implementation of the proposed measures.
The effectiveness of the measures aimed at stimulating
the birthrate will depend on how well they are supported
The MDG+ concept allows, inter alia,
for the introduction of amendments
that would strengthen pre-schools
and ensure gender equality
in the labour market.
by and coordinated with the general socio-economic
policy. Living standards, as well as access to healthcare
and education, are important factors that influence the
decision to have children. In order to attain the goal of
encouraging Russian families to have at least two
children, the measures proposed by the President should
be backed up by socio-economic policies that are aimed
at improving people’s well-being and quality of life.
The availability of housing is an important factor that
also influences the decision to start a family. At present,
young couples are granted subsidies in order to purchase
housing within the framework of the National Project
“Affordable and Comfortable Housing for Russian
Citizens”, which should have a positive impact on the
birthrate in the future.
23
V. THE ROLE OF CIVIL SOCIETY IN IMPLEMENTING THE NATIONAL PROJECTS
5.1. The involvement of civil society
in formulating, implementing
and monitoring of the National Projects
Participation of NGOs in formulating the National
Projects. At present collaboration between government
officials and civil society in the National Projects
is ensured by a system of cooperation. At the federal
Owing to their political significance and public impor-
the Council for National Projects and Demographic
tance, the National Projects have laid the groundwork for the
Policy under the President of the Russian Federation,
broader involvement of civil society in implementing social
which includes representatives from NGOs
policy. The active participation of NGOs and businesses in
and the business community, as well as the Commission
the National Projects would increase the efficiency of social
The National Projects have laid
the groundwork for the broader
involvement of civil society
in implementing social policy.
policy and improve people’s quality of life and contribute
to the realization of MDG+. The main avenues for such
participation would comprise joint participation
in formulating programmes, providing services,
and monitoring the National Projects, according to the 2005
on Issues of Civil Society Development and Public
National Human Development Report “Russia in 2015:
Participation in the Implementation of National Projects
Development Goals and Policy Priorities”.
within the Public Chamber were established. Similar
A basic scheme of the interaction among government
advisory bodies were created at the regional and local
officials, NGOs, and the business community in the design
levels. Public hearings, conferences, forums,
and implementation of the National Projects is represented
and round-tables increased in frequency nationwide.
in Figure 8.
Citizens began to use channels of direct communication
FIGURE 8. The role of NGOs and the business community in the National Projects
President
Council for National Projects
and Demographic Policy
Public Chamber
Coordinating, advisory
deliberative, expert bodies
Business
Associations
Federal, regional
and municipal authorities
NGO
Agencies and organizations social services providers
Social services (health
and education)
Citizens
24
Business
NGOs and businesses can assist
the government in providing services
in the areas of education and public health,
and even assume control over those
functions that the government fails
to carry out effectively.
services. Grassroots contact with citizens enables NGOs
to obtain information that cannot be gathered in full by
government officials.
Another potentially important contribution of NGOs
to the National Projects is the establishment of communication channels among various government officials, as
the lack of coordination among was recognized as one
with authorities, including questions and letters to
of the shortfalls of the National Projects. Work of the
the official National Projects website.
Congress of Municipal Associations of the Russian
NGOs and businesses as providers of services for
Federation, which unites 43 municipal associations,
the National Projects. NGOs and businesses can assist the
is a successful example in this area. National Projects
government in providing services in the areas of education
Implementation Commissions were established under the
and public health, and even assume control over those
auspices of the Congress, and heads of the commissions
functions that the government fails to carry out
were included in the Council for National Projects and
effectively. By way of example, the activities of
Demographic Policy under the President of the RF.
Perspectiva, the Regional Public Organization of Support
Constraints on the participation of NGOs in the
for People with Disabilities, help the government better
National Projects. At present any positive effect from
serve the disabled by providing education and
the participation of NGOs in the National Projects is limited
employment; the organization promotes collaboration
because most NGOs lack experience, funds, and cannot unite
among the disabled, employers, and educational
in their efforts to lobby for their interests. In addition,
institutions.
the predominant system of government institutions and lack
Potential gains from the participation of NGOs and
of tradition of involving the civil society in decision-making
businesses in the implementation of the National
are having a negative impact on the implementation
Projects could be seen in the quality and targeting of
of the National Projects.
services, thereby allowing for the pinpointing of social
policy toward specific socially vulnerable population
groups. For example, Yest Mneniye (There is an
Opinion), an independent non-governmental research
centre in the city of Chelyabinsk, is participating
There is a special need for dialogue
between the government
and civil society at the regional
and municipal levels, where social
issues are more closely addressed.
in the National Project “Health.” The organization’s
programme, Positive Influence, helps reduce
In the advisory bodies NGOs and business community
the incidence of HIV among prison inmates,
generally have fewer seats than government representatives.
one of the groups most susceptible to HIV.
Moreover, NGOs do not always represent the interests
It should be noted that there are still few government
of those social groups that are most in need of support.
grants and contracts that delegate powers to NGOs for
Public hearings and direct channels of communication often
the delivery of social services. A lack of transparency in
are ineffective, partially because their procedures are
the process for awarding the available grants and contracts
underdeveloped.
does not allow for competition among NGOs.
In the course of monitoring the National Projects, one
There is a special need for dialogue between the government and civil society at the regional and municipal levels,
of the most important avenues for NGO involvement is
where social issues are more closely addressed. Despite a
ensuring feedback between the people, as the consumers of
mutual interest in constructive dialogue, the participation
services, and the officials responsible for administering these
of NGOs in formulating social policy is limited.
25
THE ROLE OF CIVIL SOCIETY IN IMPLEMENTING THE NATIONAL PROJECTS
5.2. Recommendations on expanding
the involvement of civil society
in the formulation, implementation
and monitoring of the National Projects
•
more precise procedures of public hearings would
encourage a transition from discussion to concrete action;
•
the increased use of methods to involve civil society in
political decision-making at the regional and municipal
levels.
NGO involvement in the decision-making process
the National Projects will promote a transition from the
the fact that the main measures of the National Projects have
funding of institutions to the funding of the services they
already been agreed upon, the capabilities of NGOs should
provide, as well as encourage competition in the market for
be taken into account in the future planning and potential
social services. For example, the involvement of NGOs could
expansion of the National Projects based on the following
be conducive to the deregulation of housing and communal
approaches:
services market; NGOs could provide consultation on
•
NGO representation should be increased among govern-
housing and communal services reform and train heads
ment advisory bodies;
of homeowners’ associations. To achieve such positive
NGOs that represent the interests of groups that are most
effects, it is necessary to:
in need of social services should be involved more closely
•
•
in the work of advisory bodies;
BOX 11
13
delegate to NGOs the delivery of services through
government grants and contracts;
THE PRIMARY MEANS OF GOVERNMENT SUPPORT OF NGO ACTIVITY IN RUSSIA
The experience of countries with highly integrated elements of civil
society shows that collaboration between NGOs and the government
can be both effective and productive. The government of Great
Britain annually strikes agreements with the National Association of
NGOs on collaboration in the social sector; in many countries, NGOs
provide services that are paid for directly from a country’s budget.
In contrast to developed countries, the role of NGOs in Russia remains
insufficient. In 1997 the NGO contribution to GDP was tantamount to
2 percent. Today, the contribution stands at approximately 1 percent.
By way of comparison, the contribution of NGOs to GDP is approximately 15.3 percent in the Netherlands, 7.54 percent in the United
States, 6.8 percent in Great Britain, and 4 percent in Germany13.
NGOs play a limited role in the formulation and implementation of
the National Projects. Collaboration in Russia between NGOs and
the government, especially at the federal level, usually comprises
one-time events on discussion of the National Projects.
Meanwhile, nationwide, NGOs and government officials at the
regional and municipal levels have been amassing a rich track record
of collaboration. For example, in the city of Perm, approximately
one third of the city’s budget is allocated via contracts; this system
has helped save about 30 million roubles in budgetary resources.
Several dozen of regions (including Perm, Tyumen, Krasnodar, Chita,
St. Petersburg, Moscow, Saratov, among others) have successfully allocated funds by awarding grants prescribing the involvement of NGOs (in
expert and volunteer capacities) in implementing socio-economic policy.
At present, the size of the grants are small, constituting no more than
300,000 rubles. The total amount of funds allocated to NGOs via grants
varies in proportion to the size of the city, or the region – from several
hundred thousand in some places, to up to 15 million roubles in Moscow.
26
The involvement of NGOs in the implementation of
should start in the earliest phases of policymaking. Despite
In order to promote a more vigorous collaboration between government and NGOs, work should be carried out in the following areas:
• public discussions, and public hearings on policies of social importance;
• the establishment of a legal framework for allocating budgetary
funds directly to NGOs that provide social services and implement
specific government policies;
• the drafting and passage of a government policy in support of
NGO activity.
The following measures may be proposed to bolster government
support of NGOs:
• the implementation of a set of pilot projects within the framework of socially relevant areas of NGO activity;
• the promotion and development of a system for training professionals (including NGO personnel) responsible for collaboration
between the federal and local governments;
• the revision of regulations governing the NGO activity to ensure
their involvement in the delivery of social services on the basis of
public bidding (competitive contracts), namely, the amendment
of the Budget and Tax Codes of the Russian Federation. This
would permit the allocation of budgetary resources to NGOs that
provide social services and balance the scales of taxation for governmental (municipal) and non-governmental organizations;
• the establishment of the means to encourage citizens to volunteer
for NGOs by legally extending social, economic and labour rights
to volunteers;
• the recruitment of businesses and business associations, to participate in programmes oriented toward social investment via
endowments and non-economic conduits for charity.
N.L. Khananashvili
The Role of the Non-Commercial Sector in Russia’s Economic Development, Urban Economy Institute Foundation, http://ruc.logincee.org
THE ROLE OF CIVIL SOCIETY IN IMPLEMENTING THE NATIONAL PROJECTS
The involvement of NGOs in the implementation
of the National Projects will promote a transition
from the funding of institutions to the funding
of the services they provide, as well as encourage
competition in the market for social services.
•
•
increase the transparency of the distribution of public funds
mostly through one-time acts of charity or by procuring some
public goods and services. Focus should be shifted from
involvement in single events to devising social policy with the
participation of the business community. The necessary
conditions for such a shift are:
•
improving the regularity of financing, for example, by
and benefits via methods that invite scrutiny from experts;
establishing endowments, as provided for in legislation
improve the system of funding NGOs involved in the
expected to be passed in 2007;
delivery of services either via government grants
•
expanding non-financial forms of business involvement
and contracts, or the establishment of foundations.
in various social organizations, such as boards of trustees
Monitoring of the National Projects through the
of universities;
involvement of NGOs. It is necessary to establish a system that
•
increasing awareness in the business community of the
incorporates NGOs in the monitoring of the implementation of
financial requirements of programmes that are integral to
the National Projects. The Public Chamber proposed a way to
the success of the National Projects. This can be achieved
involve NGOs in such monitoring. According to the proposal,
by providing information via fairs and stocks of social
hearings will be conducted quarterly at the local level and the
projects, emerging in regions and municipalities;
findings will then be conveyed to the federal government via
•
encouraging the business community to provide public
the Public Chamber. This proposal first will be tested in one
assistance. NGOs can play a role through public
region to determine if it should be adopted in other regions.
expressions of gratitude. For example, in the city of
In short, government support of NGO activities will
Saratov, the Regional Children’s Charity Foundation,
enhance the roles they play in the formulation,
Savva, staged a competition among sponsors and donors
implementation and monitoring of the National Projects.
called “Virtue Has Names”. The ultimate aim of the
contest, however, was to encourage the business
One example of governmental support for NGOs can be
community to help vulnerable segments of the population;
seen in the competition among the organizations for resources
administered by the Public Chamber of the Russian Federation
this year. Budgetary funds in the amount of 250 million roubles
•
To take advantage of the analytical and management skills
of the business community to help develop social policy.
will be allocated to NGOs. An identical amount of money will be
distributed to plenipotentiary representatives in federal districts.
BOX 12
INDICATORS OF SOCIAL INVOLVEMENT
Merging public resources. The emergence of foundations
comprised of the contributions of various donors (i.e. businesses, government, local residents, non-profit organizations, etc.)
may serve as one of the mechanisms for pooling resources
from all sectors. Foundations award grants to NGOs, and are
managed by boards of directors that reflect the makeup of the
communities in which they are located. Such foundations help
to develop a common strategy for community development,
as well as the implementation of the National Projects.
Recommendations for increasing the involvement of
the business community in the National Projects. At present,
the business community participates in the National Projects
The government support of the activities
of NGOs will enhance the roles they play
in the formulation, implementation
and monitoring of the National Projects.
The effectiveness of government policy toward NGOs may be
assessed on the basis of indicators of social involvement, which
include the following:
• total number of NGOs;
• number of NGOs involved in various phases of the National Projects;
• number of people involved in NGO activities, both on a paid and
voluntary basis (from various social groups);
• number of activities and projects in which NGOs are involved;
• number of times NGOs are mentioned in mass media (the ability of NGOs to influence public opinion);
• the extent to which the government adopted resolutions from
public hearings;
• the total amount of money obtained by NGOs from various sources;
• the number of services delivered through NGO participation (by
sector);
• NGO contribution to GDP;
• NGO contribution to the realization of target indicators of the
National Projects.
The assessment of the role of individual NGOs can be made more
objective by introducing a reciprocal rating system among NGOs.
27
CONCLUSION
The National Projects are a promising new instrument of
social policy from the standpoint of achieving the Millennium
switch from expenditure-based to outcome-based monitor-
Development Goals (MDG) in Russia. The activities carried out
ing. Such a switch would allow for greater control over the
within the framework of the National Projects either directly
quality of the services rendered, and influence on the behav-
contribute to the achievement of the MDG adapted for Russia
iour of personnel working in the spheres of education and
(MDG+) or create the conditions that lay the groundwork for
public health.
their implementation. Furthermore, the MDG+ concept can
A new avenue for the realization of MDG+ in Russia
be used to expand the opportunities for human development
could open up over the course of the implementation
within the framework of the National Projects.
of the National Project in the area of demographic policy.
Firstly, the long-term objectives spelled out in MDG+
A set of measures must be formulated to stimulate
create a basis for strengthening the strategic component
the birthrate. The MDG+ concept allows for the introduction
in the National Projects. The MDG experience in establishing
of measures that would ensure gender equality in the
strategic goals can be used in formulating additional goals
labour market, and strengthen pre-school education by
aimed at increasing access to education and healthcare,
improving early access to children from families of various
especially for socially vulnerable population groups. In the
social strata.
area of education, such additional goals could entail the
International experience in increasing the
modernization of primary and secondary vocational
involvement of civil society, reflected in MDG+, can be
education, as well as better access to pre-school education
applied to the National Projects. The main areas of
for the socially vulnerable. In the area of public health, a
involvement of institutions of the civil society might
broadening of the scope of the National Project might
encompass the development of programmes,
consist of promoting prevention among primary care
the participation in delivering services to people, and the
physicians and reorienting people toward healthier lifestyles.
monitoring of the projects. The involvement of NGOs in
Secondly, the approaches proposed by MDG+ for meet-
28
and quality of education and healthcare, could enable a
these processes would contribute to further development
ing goals and using indicators to assess efficiency could be
of advisory bodies in governmental organizations. It also
adopted as a means for customizing the implementation
would spark a transition from funding institutions, to
mechanism and improving the monitoring of the National
funding the services that they provide. NGOs can respond
Projects in Russia. The indicators used by the National
more quickly to feedback from people on the quality and
Projects are primarily expenditure-based, not outcome-
accessibility of social services. In this context, it is necessary
based. Outfitting the National Projects with the relevant
to support the initiatives calling for an increase in the
MDG+ indicators, such as those reflecting the accessibility
involvement of NGOs in the National Projects.
MAIN PRIORITIES OF THE NATIONAL PROJECTS IN RUSSIA
National Project ‘Education’
1. Developing the best models of education
• Support to innovative universities and schools, best teachers and
talented youth
2. Introducing modern technologies to education
• Supplying schools with computers and providing access to Internet
3. Creating world-class national universities and business schools
• Universities in Siberian and South Federal Districts, as well
as business schools in Saint-Petersburg and Moscow region.
4. Raising the level of teaching in schools
• Supplementary payments for class supervision
5. Developing the system of vocational education in the army
• Broader access to education for fixed-period and contract military
personnel
6. ‘Rural school bus’ Project
• Measures to support regions of the RF in purchasing vehicles for
rural schools
National Project ‘Health’
1. Developing primary healthcare
• Wage increase and training of primary-care physicians and GPs
• Procurement of equipment and vehicles for healthcare organizations
• HIV prevention and treatment
• Newborn screening tests and introduction of ‘delivery certificates’
• Clinical examination for working population, healthcare for senior
persons and pensioners
2. Providing the population with state-of-the-art medical care
• Opening of new medical centres
National Project ‘Affordable and Comfortable
Housing for Russian Citizens’
1. Making housing more accessible
• Granting of subsidies to young families to purchase housing,
mortgage insurance
2. Expanding mortgage lending
• Governmental support through Public corporation ‘Agency
of mortgage credit’
3. Increasing housing construction/modernizing the infrastructure of
public utilities
• Improvement of municipal infrastructure
4. Meeting public commitments on providing housing for certain
population groups
• Introduction of state housing certificates
• Housing improvement for veterans and disabled persons
National Project ‘Agricultural Development’
1. Hastening developments in animal husbandry
• Crediting of construction and modernisation of cattle-breeding
farms
• Supply of cattle and equipment through the system of federal
leasing
2. Developing small-scale farming
• Granting of subsidies for interest rate, development of rural credit
cooperation
• Development of mortgage credit infrastructure
• Development of storage, processing and sale enterprises
3. Providing affordable housing to young professionals in rural areas
• Granting of subsidies to young specialists to purchase housing
The Millennium Development Goals customized for Russia (MDG+) and the National Priority
Projects are both aimed at reducing poverty and improving access to resources for human
development. In this publication the authors assess the potential for applying the concepts of
MDG+ to the National Projects as a new social policy tool in Russia.
■ Use of MDG+ for improving the National Projects
The long-term guidelines spelled out in MDG+ could augment the strategic component of
the National Projects, enhance the quality of implementation, and improve monitoring
■ How can the focus of the National Projects be broadened to better address poverty
reduction challenges?
To increase the targeted nature of social policy it is possible to use the MDG+ approach that
calls for identifying social groups by income overlap, socio-demographics and territory
profiles of poverty
■ How can MDG+ contribute to the development of the National Projects ‘Health’ and
‘Education’?
Following the MDG+ approach, the additional goals of the National Projects could include
modernization of primary and secondary vocational education, and increased role
of prevention in public health, complemented by indicators of access of the general
population, as well as specific social groups, to human development resources
■ MDG+ and measures for stimulating the birthrate
The focus of MDG+ is on the factors that influence decisions to have children such as
gender equality in the labour market, and improved pre-school education
■ National Projects and civil society
The concept of MDG+ reveals the potential for more active involvement of non-governmental organizations and the business community in formulating, implementing, and monitoring
the National Projects
© United Nations Office in Russian Federation