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3. Постановление Правительства РФ 5 октября 2010 года № 795 «О государственной программе «Патриотическое воспитание граждан Российской Федерации на 2011-2015 годы».
AN ACTIVE MODEL OF A SOCIAL PROGRAM AND ITS STRATEGIC ADVANTAGE
© Terziev V.*
Vasil Levski National Military University, Bulgaria, Veliko Tarnovo
The paper presents an active model of a social program and discusses its strategic advantage. The analyses made are based on a study of the experience of the Republic of Bulgaria in the transition period and afterward. Active social policies are considered and a methodology of development of an active social program is concerned examining characteristics of an active social program of human development and the components of the mechanism of social program activation.
Keywords: social policy, social program, active program, labor market, employment.
Introduction
The decline in the economic activity of the population and even more in the employment in the 90s of the XX century, the high rate of long-term unemployment and the mass poverty led to the contraction of the domestic market, reducing the chances for production development and increasing employment. All this reduced the social security (even if only in terms of insurance funds) and retarded the society development, making the transition to a market economy long and happening at high social and economic costs.
The restructuring of the workforce and the changes in the employment of the population in Bulgaria are radical, large-scale and diverse. Generally they are divided into two groups: one is in the direction of building a market economy in the country and it expands the opportunities of the country for integration and the other one bottlenecks, sets barriers to the successful integration and development on the path to market economy and democracy. The latter requires an adequate policy for increasing employment and reducing unemployment in the context of the agreed policies, strategies and plans of the EU member states.
* Professor, D.Sc, Ph.D, Dipl. Eng. Department of Business Administration and logistics.
The first group of changes in employment, creating a good basis and opportunities for the integration into the EU and the development on the path to market economy and democracy are:
- change in the model of employment - from administrative to market distribution of employees and their mobility; from full employment on social basis to unemployment and uncertainty in terms of paid work; from passive to active behavior and competition in the labor market.
- elimination of administrative restrictions on the movement of the workforce inside and outside the country; creation of conditions, albeit limited for now, for greater mobility of the workforce;
- transition from administrative to contractual relations in the field of paid employment, negotiations on the labor price and on other conditions of employment between the immediate participants in the labor process (employees and employers);
- new and radical change in the existing national labor and social legislation in the context of the development of the market economy and the democratic processes and in accordance with international conventions, European directives, etc.;
- establishment and development of social partnership at all levels and development of the system of collective labor bargaining;
- creation and development of the labor market and its institutions and policies with the development of a network of employment services throughout the country, their equipment and the qualification of the persons employed in them;
- creation and development of a policy for regulating the labor market, an active policy for stimulating unemployed to return to work and employers to hire certain groups of unemployed;
- restructuring of branch and sectoral employment, rapid increase in the number of employees in services and reduction of those in industry;
- increase in the employment in the private sector, in the number of entrepreneurs and self-employed;
- development of different forms of employment, although still limited at this stage, slow increase in the number of the people working part-time, etc.;
- rapid increase in the number of employees in NGOs as a kind of guarantee for the development of civil society in the country.
The second group of changes in employment, changes posing problems and barriers to the achievement of economic growth and social cohesion, include:
Reduced participation of the population in paid work, employment and economic development. Growing economic burden on workers (social contributions, taxes, restrictions on wage growth, etc.). The drastical decline in the employment of young people, ethnic groups, women, rural population stands out on the background of the general drop in employment.
As a result, there is a rise in the number of poor and impoverished, excluded from the world of work. There is a high proportion of the employable population dependent on and in need of social assistance. For part of the unemployed (mainly long-term unemployed) it is difficult to return to work, for another part it becomes impossible to provide education to their children. The preliminary school leavers are therefore numerous.
Despite the significant contraction in employment in the 90s of the XX century (about 40 % compared with 1989), the hidden unemployment and the inefficient use of the employed remain high. Improving the efficiency, the competitiveness of the majority of the national production requires reducing the share of the costs of production, including labor costs. This virtually requires dismissal of some employees.
The process of deindustrialization and economic restructuring naturally resulted in the sharp reduction of employment in industry. The decrease in production was more significant. Crushed were the employment and the production in some sectors for which it is considered that the country has a good potential and traditions and in sectors in which a lot has been invested in recent decades. The first ones include light and food industries and the second ones - electronics, computing, electrical industry, instrumentation, specialized equipment, etc. In this way the national economy has not only lost foreign markets and opportunities for more accelerated growth and employment, including of highly skilled labor, but also opportunities to change the technical and technological level of production in the near future, to keep in the country and to use professionally trained and qualified specialists in an effective way.
The expected institutional restructuring of research (from institutes to universities) failed to occur.
Production was deprived of research and innovation, needed for an increase in the effectiveness and competitiveness of the domestic production. The scientific potential, very limited in number and scattered in many directions, is virtually ineffective also because of the limited resources that can be spent from budgets on research and equipment.
In the public and especially in the private sector, there is a high share of employees, receiving wages around the minimum amount. Part of the private sector employees are still not insured for social risks. This leads to an increase in the number and the proportion of the so-called working poor and also increases insecurity and social differentiation. One part of these people choose official unemployment to employment (the social benefits are relatively high or sufficient in size so that they are preferred to the receipt of income from work) or continue their stay in unemployment as preferred to the alternative of low pay and insecurity.
In the 90s the unemployment was high, mass and long and lead to profound social and economic changes in society. Actually the labor supply was much greater because of the many graduates of educational establishments or early
drop-outs, desperate and disillusioned unemployed who gave up their official registration, seeking employment pensioners and students and others. Thereto was also added the huge number of exempted from the army in connection with the ongoing reform in it. During this period the unemployment rate in many communities was over 30 %, and in some - over 40 and even 50 %. Most of these regions are with mixed and Roma population. Only about 1 / 4 of the unemployed receive social benefits or the majority of the unemployed have no income. Relatively few of them can hope for social assistance or involvement in subsidized employment programs. The majority of the unemployed have lower education without professional training and / or without work experience. The majority of them are Roma, young people and women. About 60 % of the unemployed are with low education and without profession, which means that, case of favorable economic growth, increase in the foreign investments, increased labor demand, it is very unlikely that they find paid employment. And this is confirmed in practice as in recent years a high growth, a high labor demand, even a shortage nationwide, have been registered in the country. The unemployment, although significantly decreased, remained relatively high, especially for the unemployed from the so called risk groups (long-term unemployed with low education, no profession, disabled, etc.). For many of them paid jobs remain inaccessible and entering into such an employment is accidental, non-continuous, uncertain. This in turn results in social insecurity and in the «best» cases - employment in the informal economy, migration and others.
The employment policy has long been focused mainly on the unemployed, on financing the highly restricted activity vocational guidance and training, promoting and encouraging unemployed to take up work and employers to hire certain groups of unemployed. Very little funds are still used for active policy, teaching, professional training and retraining of the unemployed, for job creation for long-term unemployed in the real economy, for increasing the mobility of the workforce and other activities that would actually reduce the unemployment and the occurred social tension. Employment and unemployment are closely related and dependent on the cycles and characteristics of the economic development and its management. On the other hand, as a product of the functioning of the labor market, they need to be considered in the context of the general economic theory of the market economy, by distinguishing the capabilities and the effectiveness of the public policy for intervention and regulation.
Regardless of the existing differences in the level and structure of employment, there are some general trends and structures such as:
- significant reduction of the employment in the sectors of the primary sector, the extractive ones (agriculture, ore mining, coal mining, etc.);
- reduction of the employment in the industries of the secondary sector (manufacturing, construction, etc.);
- increase in the employment in the tertiary sector (services);
- increase in the educational level of employees, decrease in the number of employees with lower than secondary education;
- increase in women's employment;
- reduction in the proportion of employees on a permanent contract and increase in employment for definite working hours;
- increase in the proportion of part-time employees and of other non-traditional forms of employment;
- the majority of the employees are employed, the proportion of employers and self-employed is under V5 of the total number of the employed.
The levels of employment and unemployment are influenced by the following factors or policies for their activation:
- policy to increase the employment of the population as part of the ma-croeconomic policy and policy to reduce the imbalance in the labor markets;
- the level of education and vocational training, the level of compliance with the preparation of the economically active population and the demand of organizations;
- policy for development and improvement of the preparation of the population, policy for investment in human potential;
- level of the economic development, the structure of the economy and the course of its development;
- policy for development of small and medium-sized enterprises for promoting entrepreneurship and self-employment;
- development and improvement of legislation and secondary legislation to ensure the right to work and to create opportunities for the realization of this right by the various population groups;
- policy for development of the regions and localities with high unemployment and declining economy;
- financial, tax, investment policies of the state, creating an environment for economic activity of enterprises, increasing their demand for labor;
- social and demographic policy, income and special protection policy for certain categories of the population in employment and others.
The transformations in the labor market, income and social security, social assistance and the formation and development of human resources as well as the relations between these systems have not been subject to thorough research in the Bulgarian scientific literature so far. The development of these systems has not been studied in relation to the implementation of various policies in terms of unemployment and employment.
The latest financial and economic crisis of 2008 finds us insufficiently prepared to implement an integrated approach to the social sphere, and in particular in the development of the labor market, social protection and human resources, in line with the adverse changes in the macroeconomic environment. Practically,
different programs and measures borrowed from foreign experience are applied, as attempts are made for their approval at regional and national level without a preliminary comprehensive analysis to be made.
Active social policies
Introduced in response to the significantly rising unemployment in the OECD countries in the 70s, active policies are continuously expanding the range of programs and measures, currently including the following key elements:
- mediation services in the labor market;
- creation of new jobs (temporary employment programs);
- training / retraining of unemployed and employed;
- promotion of entrepreneurship;
- subsidized employment.
Despite the existence of numerous modifications and specific variations of the implementation of the specified fields of the active policy, this qualification is valid for all countries, including the active policy implemented in the labor market in Bulgaria.
The adverse negative demographic trends in our country, leading to the reduction and the aging of its labor resources; the steadily unbalanced nature of the labor market, characterized by high unemployment and low labor demand; the presence of disadvantaged groups and significant regional differences in the development of the labor market were among the major challenges for the country in the first decade of the new century. The so called active programs and measures on the labor market take a special place among the macroeconomic policies and resources. They are subject to an increasing interest and comment not only because of the expectations for tangible effects, but also due to the relatively significant financial resources needed for their implementation.
The problem of efficient spending becomes more acute in the current situation of limited social spending in the country. Capacity building for conduction of regular monitoring and evaluation of the effectiveness of the active policy is one of the priorities in the European Employment Strategy.
In the practical assessment of active programs and measures, researchers often face a number of problems arising from their multipurpose and multifaceted nature; lack of a unified and well-established evaluation methodology; measurement errors and lack of adequate statistical information; objective impossibility to track persons and to determine the benefits of participation in such programs. More than a hundred studies have been carried out on various active programs in the world and they have given ambiguous and often contradictory results as regards the effectiveness of these programs. The results are strongly influenced by the peculiarities of the country, the term and the manner of the program implementation.
The starting point for the evaluation of active programs and measures is the clarification of the goals, the tasks and the expected outcomes of the program.
Active programs have multiple effects on the labor market. Arisen as a means of reducing unemployment, today they are associated with very broad anticipated effects of their application. Generally, active programs can be regarded as a tool for supporting the effective functioning of the labor market. They provide assistance to removing the obstacles and the problems for the functioning of the market economy.
Active programs are a means of enhancing the competitiveness of the workforce, mobilizing the labor resources and increasing the economic activity of the population. In the absence of credit funds, microcredit schemes become real and often the only means for the development of small and medium-sized business in the country. Active policy performs a very important socio-distribution function, especially in the presence of disadvantaged groups in the labor market. For the latter, the participation in active programs is often the only chance for employment, thus preventing them from falling into extreme poverty and social deprivation (isolation). Last but not least, the proper definition of the objectives and the expected results from active programs and measures and their appropriate disclosure in the public space determine the extent, the trust and the support for the socioeconomic reforms in the country.
Classical complex targeted social programs are traditionally used in the conditions of a command-administrative (totalitarian) social system. In such a situation programs are developed and implemented largely disconnected from one another, tied to the state centralized directive, prospective and current planning. These social programs are implemented in parallel with the external social environment. They rely on state funding and budgetary planning, but at the same time they do not envisage significant corrective effect on the part of the subject and the object of management, correction of the cross-program social aspect, interaction of the participants in the social programs, adjustment of the relatively social evaluation of the program implementation.
In the conditions of democratic transformations, these social programming principles are underperforming. In moments of social instability, the classical form of social programs requires a substantial adjustment. In the practice of developing social programs one is forced to abandon the rigid program development that has not been changed for a long time. Although today enough has been done in the system of labor and social development, the social policy is still slightly based on science, on the strategy for search of resources for human development, on well-considered personnel policy, scientific methodological ensu-rance of the social sphere development, on scientific and practical developments of current social problems. Irrelevant factors regarding the population's health such as sustainable ecosystem development, including the quality of social education, the level of the organizational culture of institutions, the professional qualification structure of services, the level of the professionals working with the population are often ignored. The ideology of social services as a whole is gradually
distancing from the old system of social protection, but the final distancing from the paternalistic position has not occurred yet.
The democratic changes require a new ideology for the development and implementation of social programs. The public can no longer choose social objectives as a component of targeted actions invariant over time. It is the change in the conditions of the social life activity that gives rise to the necessary amendments in the realization of social programs. Social programs should make possible the active partner interaction of their participants, introducing the principle of democratic interaction with the subject of social impact. Modern social programs should not be deprived of relations with the state financial and budgetary planning. Their main source of funds should be formed on the basis of the budgets at federal and regional level.
Classical complex social programs are oriented towards determining their social performance through the efficiency of capital investments, partially abstracted from other investments (including social investments, investments in educational, scientific and human capital). It is considered that in a stable social environment, the implementation of its partial amendments does not need to be recorded in the estimated indicators of the social program. Therefore the indicators for socioeconomic justifications, met on the basis of the used regulations, have been positive as a rule, but the actual social results from the development of human resources often turned negative and, what is strange, this affected in no way the subsequent stages of the implementation of the social program.
In the late 80s of the last century, the classical approach used in the development of social programs was acutely criticized in scientific literature. It was noted that the social programs, determining the realization of the social policy, should cover the entire range of needs and interests of people. The subject of the social program should be determined by a flexible influence over «the situation of classes and social groups, nations and nationalities, social class and national relations, the situation of individuals in society and their relationship with it, all aspects of people's welfare, typical of the society and its component classes, social groups and lifestyles». Researchers noted that it was necessary to significantly expand the field of influence of social programs, to combine the long established social technologies with new, more flexible and socially mobile ones, i.e. effective means of influencing the social processes. «The rejection of the established methods of management inevitably disrupted the stagnant equilibrium of the social processes and it would reveal many contradictions and problems hidden until recently, also creating new ones. At the same time, the reform of the political system opens up opportunities for solving these problems through scientific inquiry and democratic comparison of the different alternatives of social policy». It turns out that the new conditions require a change in the basic approach for social program development. In the conditions of a reform, the current foundations determine the existence of a flexible mechanism for free formation and disclosure of
the interests of all classes and social groups, their flexible coordination and realization in the process of social programs development and implementation.
In the 90s the social programs were not only characterized by rigidity and social inefficiency, but they reflected the negative context of corruption, which had become a stable system of relations. Specific relations were formed between entrepreneurs and officials, reflecting not the cooperation in the name of achieving social goals, but as a means of deprivation of financial resources in the interest of a narrow group of people. As a result the serious violations in the process of social program implementation led to the loss of their social efficiency and resulted in subsequent crisis phenomena reflecting the ineffectiveness of the social policy at macro level. The losses for society substantially exceeded these social gains that it would have received, if the social programs had been implemented.
According to most people polled in recent years, the main objective of the social programs in Bulgaria has been to ensure stability and not the development of human resources and to provide assistance to disadvantaged people.
In the conditions of building an information society, new theoretical approaches originate, a new model of active, dynamically self-developing social programs is formed - programs that can be actively self-improved and adapted to the dynamically changing social life conditions. In the new conditions there is also an increasing actual need for targeting the social programs towards a solution of the problems of intellectual and educational development, but at the same time the characteristics of health and physical development do not lose their social significance. Today public health is a real indicator of the country's wealth, a reflection of the quality of life and the level of development of human resources. The health state is directly related to the income per capita and the maintenance of the health care system.
In summary, we can say that, in the conditions of a market economy, the contemporary social programs can occur in many forms, which in turn have specific principles, methods, technologies for identifying and reaching social goals, ways and means for the realization of human resources development. The general trend in the development and implementation of social programs for human resources development lies in the fact that their main target orientation is related to solving the problem of health and physical development of the population, the intellectual and educational development of human resources.
The application of social programs in a modern market system of production requires not only deep knowledge and understanding of its nature and essence, but also creative skills for using the specific forms of the method of social management, elaborating detailed technical procedures for the drawing up of social programs and their implementation in accordance with the principles of the systematic social management.
Objectively the population prefers to participate in active social programs synthesizing active projects as a complex of flow projects at the heart of which lie
social processes directed towards human development. The social processes based on active programming and projecting have an unbalanced, dynamic nature and this is why they are in the forefront of active social programs. The fundament of social resources for support of the programs may be conditionally structured as a combination of at least three layers of support, which, taken together, form the space of the flows of the supporting social resources. The first layer, the first resource fundament of the space of the flows, consists of a chain of electronic impulses (telecommunication, computer processing, systems for broadcasting and high-speed transport, based on information technologies). The second layer of the space of the flows is composed of nodes and communication centers. These are mostly large social institutions which are a link to the global network for supporting social projects. «The third important layer of the space of the flows refers to the spatial organization of the dominant managerial elite performing management functions, around which the organizational space is built. The persons of the technocratic, financial and management elite, occupying a leading position in our society, also have their specific spatial requirements regarding the material and spatial basis of their interests and actions».
In the new conditions the development of programs requires an active research and innovative work for setting its self-development in the mechanism of its implementation. The adequacy of the program-targeted social management in an unstable and constantly changing way of life is manifested in its orientation towards an active examination of the results from the social program implementation (social evaluation of the implementation results), attracting large groups of the population for its development. Active social programs are a system of social projects with a direct and a reverse link of social interaction, which determines the opportunities for adaptation of the program components to the changing demands on it. Moreover, in connection with the implementation of the social program there can be a change in its social objectives, implementation deadlines, partly in the participants and there can be a transformation of the attracted social resource.
Methodology of development of an active social program
Nowadays in their essence active social programs reflect the transition from a traditional to an innovative model of social development. It is this transition that determines the complex utilization of social programs within the innovative creativity, the partner relations of the participants in the program, the delegation of auxiliary functions to lower structures, but also the wide participation of the population in the implementation of the programs.
The methodology of the development of an active social program requires focusing on the following theoretical components:
- Establishment of the social problem. «Apprehending a clearer understanding of the problem and a more reasonable control over certain key
processes, we can turn the crisis into an opportunity, thus helping people not just to survive but also to reach the tops of the waves of change and gain a new sense of mastery over their own destinies»;
- Determining the social objective of the program is the starting point for programming the process of the human resources development. The external social environment provides an objective characteristic of the surrounding conditions, the parameters and the structure of external objects, interacting with the subject in one degree or another;
- The design of the planned trajectory for human resource development takes place within and by taking into account the comprehensive set of federal and regional programs, approved for implementation in line with predetermined social criteria.
The design of the trajectory of human resources development is related to the solving of the following objective tasks: first, determining the initial coordinates of the process of the human resources development; second, description of the conditions and the parameters of its extreme states (the final coordinates of the movement trajectory); third, setting the criteria for qualitative and quantitative indicators of the human resources development.
There are many works of scientists-mathematicians related to the solving of the task of building the planned trajectory of the manageable system [1-14]. Examining in details some attempts for using the results of these studies, we came to the conclusion that the mathematical formulation of the problem has limited practical significance in the design of methods for influencing the human resources development. The truth of the statement is confirmed by the fact that «any attempt to execute the transfer of the object ... through the actions of management... from the starting state to the desired final state builds on the principle impossibility for mathematically precise determination of the initial states of the object» [1521]. A similar problem is also related to the need of formalization of the impact of external disturbances of the system for the vital activity of the population.
In this connection, a question of interest becomes the maintenance of the conditions for material consumption and the level of health of the population, but also the design of the trajectory of the educational development of the human resources. In the future the modern system of scientific and educational institutions will become a fundamental element of the information society as a society based on information resources, but also on self-learning educational systems. In the modern models of active social programs it is needed to set a trajectory for proactive education of the population. Educational development must be of a continuous nature, providing targeted training, self-training, retraining of the population and other new forms of training. Proactive education in an abstract form looks like some ideal at which the educational process can aim, shifting its emphasis for development from the past to the present and the future. «The uncertainty of the future can be significantly reduced through the selection of the
most desirable tendencies out of the various alternatives and forecasts and at the same time by selecting the most actual trends extending into the future, which is amenable to targeting (manageable impact). Such tendencies or traits of the future can turn into a normative vision of the society development or the individual areas of its activity» [22].
It should be noted that the most important goal of modern social programs is determined by the proactive level of knowledge, foresight and achievement of socially significant consequences from the future within the shaping of the general education process. Reaching a goal can serve as a criterion during the implementation of the model for proactive education as a basis of social construction of anticipatory human development. In its essence this social construction is a synthesis result of the implementation of complex active social programs in society. Proactive educational development of human resources at society level reflects the transition of individuals from one socio-professional layer to another, accompanied by the development of the capabilities and the needs of individuals through the utilization of one or another set of universal cultural items - language, symbols, customs, traditions, social norms, general and specialized knowledge -translational with the education and self-learning system of the society and providing an opportunity for continuous objectification of personal skills, habits, experience in the system of social professional action».
The central axis in the search for optimal forms of social construction is a dynamically developing system of education and a new type of dynamically developing intelligence, a new personality, corresponding to it. This position can be argued with the fact that the educational system is a social industry which prepares specialists in one or another type of thinking, this is a spiritual targeted development of this or that type of personality, i.e. it is essentially a system of expanded reproduction of the spiritual culture of society members. The society transforms and evolves rapidly and the system of educational institutions, pedagogical practice is an obstacle to this process. Educational institutions of a different rank record a quantitative growth of graduate specialists, without taking into consideration the conformity of their qualities with the growing needs of the current social development. This contradiction can only be overcome by providing conditions for competition of the structural elements of the education system, which is oriented in a targeted way to the development of the literacy of different population layers. «Namely the educational development of human resources, defining the totality of the acquired systematic knowledge, skills and professional habits, but also the acquired skills for further learning and analysis of knowledge, the exchange and the use of information in the course of professional activity are the most important factors and social objectives of the entire social policy».
An active social program also features dynamic adjustment regulation through the including of feedback upon its implementation. The functions of the adjustment regulator are a kind of solution to the task of optimization of its com-
ponents as a result of the changes in the conditions of the activity of the population - bringing under control the disturbing external social impulses arising upon the social program implementation.
The adjustment regulator of the program consists of three interrelated parts: a system for social research, an organic system for planning and an organic regulatory system. The system for social research is executed by methods for studying the social interests of the population. As a result the social studies reveal the needs and the population's preferences for certain social benefits: housing, health promotion, sport and cultural needs, advanced training and retraining. Social planning is implemented for the purpose of addressing a social problem caused by the mismatch between the social program components and the changed requirements.
Social regulation is a process of creating conditions for active realization of the social program. The successful implementation of the social regulation contributes to the unification of the participants in the program, the approximation of their interests and the interests of the population being targeted by the program.
The specified components are completely identical in structure and consist of the following interrelated parts: forecasting (anticipatory reflection of reality); planning of the social changes in the components of the system; simulation model for the formation of the program implementation process; immediate internal adapter of the program management system; external adapter of the program management system; internal adapter of the program management system.
The principle of anticipatory reflection of reality expresses the possibility of adaptation of society to changing environmental conditions and the actual possibility of existence, the ability of realization of the current and future reality. The anticipatory reflection of social reality is one of the forms of reflecting the future social development, which is «a historical foundation for the emergence of all higher forms of the forecasting of future events and above all the emergence of conditioned reflex».
In the social program the principle of anticipatory reflection of reality is expressed in the considering of the determination of the future features of the project impact: social forecasting, social prognosis, social design, social programming, social planning, social construction, social engineering. Based on the principle of anticipatory reflection of the social reality, «in this dimension one can formulate the principle of anticipatory reflection of the social reality as a fundamental principle of social design» [22].
In the new conditions the theoretical paradigm of social programs requires a synthesis with the theory of active systems, which must objectively lead to the provision of conditions and motivational activity among the participants of the targeted social program. Namely the activity feature of a system element mostly corresponds to the model of an active targeted social program, for the implementation of which individual actors were attracted: the population, the state and the public social institutions.
The theory of active systems is transformed into a part of the theory of program social management determining the social adaptability of social programs, the use of more participants in the program, the realization of their activity. Namely the property of the system element activity mostly corresponds to the active model of the social program. Activity is manifested in the partners' autonomy and the interest of the participants in the program. The coordination of the efforts directed towards achieving the social objectives of the program must be combined with the obtaining of social benefits by the participants in it.
Social programs acquire an active character as a result of the expanding of the members and the systematic unification of the participants in the program on the partnership principle, but also as a result of economic stimulation, activation of their social actions, i.e. the opportunities for a strategic choice of the participants in the program are targeted, but within the realized social program. In the development of social programs this means that each participant in it, on account of his/her participation, solves some kind of social task that is of present interest to him/her. The active model of the social program implies the development of conditions for obtaining benefits from the participation in the social program. In the active program targeted systems, the manageable subjects are placed in conditions and have increased active management powers. What is of importance here are the conditions and the opportunities for freedom of choice of one's own state, the possibility to express one's own interests and preferences, i.e. deliberately to choose one's state, but in the system of the priority of the executed social program. The active model of the social program reflects the network structure of social management in the program implementation, within which the participants in the target social program have a high degree of freedom of action, aim at a choice of such strategies, which appear to be optimal in terms of their target results, with the preset or predictable meanings of the social potential used.
The development of an active targeted social program presupposes four components of its activation mechanism (Fig. 2).
First, the participants in the program have a wide range of choices of action to implement the objectives of their interests. This means that, on account of his / her participation in the program, each participant in it is interested in solving some social task that is of importance for him / her.
Second, the presence of a body of the social program, with broad composition of managers, with broad involvement of the public. This body must not only study the social results of the program implementation, collect data, evaluate the stages of the program implementation as a whole, but also develop guidelines for the correction of the program elements.
The third is determined by the system for motivation of a broad composition of participants in the program. The development and implementation of a social program requires a special form of motivation for an actively liberated, proactive, scientific style of work, determining self-education, creativity and innovation development in any workplace.
Fig. 1. Characteristics of an active social program of human development
The forth - the necessity for a constantly operating innovation center for innovative improvement of the social program, for activation of the processes of its renovation.
The highly qualified intellectual labor is a potential opportunity for self-improvement of the social program. The scientific innovative activity of the participants in the program - that is a self-increasing resource, having cultural and assessed value and determining the potential for active adaptation to the changing social conditions. «People performing mental labor possess their own means of production, i.e. the knowledge stored in their heads. This is an absolutely portable and unusually voluminous type of fixed capital. As the employees of mental labor are in control of their means of production, they are very mobile. Figuratively speaking, the employees of physical labor are more interested in the work than it is interested in them. Probably not for each employee of mental labor can be said that he / she is needed to the work more than it is to him/her. But in most cases the relationship of the employees of intellectual labor with the organization providing work to them are characterized by the fact that they are equally interested in each other».
In this way active social programs aim at solving social problems through the implementation of breakthrough, innovative social technologies, attraction of investments, optimization of social resource flows, integration of the social systems. Social program development rejects the principle of an end of the carried out social events. Above all every active social project is an innovation as its
main objective is to be found in the development and the use of new ideas which may be new social technologies aimed at providing social services, ensuring the dynamic social development of the population.
Fig. 2. Components of the mechanism of social program activation
Active social programs are created as a set of social projects on the basis of a unifying idea for social interaction guaranteeing the coordination of the interests of the population in the conditions of an unstable social environment of impact. An active social program is a system development. Each, taken separately, component of an active social program is interconnected and interdependent on the other parts of the program. As a rule, the isolated realization of the individual elements of the social program, cut off from one another, creates conditions for a sharp reduction in the effectiveness of its implementation.
The unifying social idea of the active program - this is the optimal synthesis of thoughts, ideas and objectives of the program participants, among whom there are representatives of the public. Moreover, the participants in the social program are relatively independent, they act proceeding from their own interests - upon their participation in the social program, each one makes decisions in his / her own interest. The program is developed on the basis of the creation of a socially important unifying idea, so that the interests of the participants in the active social program can be consistent with the objective of the active program itself. The social program is developed on the basis of the study of ideas and innovative thinking of the participants, on the basis of a comprehensive analysis in the field of realization of the active social project, through the formation of a unifying idea and the design of schemes about the interests of the participants and the popula-
tion. Then, taking as a starting point the obtained data, the structure of the active social program is formed, a network of organizations with the program participants is created around the representative of the unifying social idea, who enters into the role of a coordinator and supervisor of the program implementation.
Conclusion [23-31]
Active social programs share a number of common characteristics: they are aimed at achieving specific objectives; incorporate the coordinated execution of interrelated actions; they have an action limited in time with a defined beginning and a specified period for drawing up of a new program or its completion; to a certain extent they are unique.
The result of active social programming allows the realization of a complex program with maximum efficiency in a rapidly changing social environment. Moreover, the unifying ideas ensure the involvement of relatively independently functioning social institutions by coordinating their needs and interests. The active approach primarily aims at obtaining effective development of the social object of the program by introducing disruptive technology innovation, attracting the public to the management, optimizing the resource flows, integrating the social systems of the participants in the program. The term «active programming» emphasizes on the continuous process of adaptation of the developed program to the conditions of the social environment in the system. Therefore an active social program is open for system self-development. The success of its management implementation is largely determined by the factors of the interaction of the social program elements with the constantly changing environment of its impact. Unlike conventional social programs, the active form of social programming is a creative self-developing project with transformable final social goals, means and tasks of the process of social changes, with rejection of the rigid static schemes of the classical social programming. Active social programs are aimed at local social stabilization in unstable, dynamically changing conditions of the environment for social impact. Active programming is mainly oriented towards the effective development of social objects through development of innovations; optimization of financial, resource and innovation flows; integration of socioeconomic projects in the global economic relations.
The information obtained as a result of social research on the conditions for program implementation is the basis for the formation of any significant, system-ically interrelated factors for social changes, reflecting the nature of the ongoing processes and phenomena. The participants in an active social program have and realize skills for an active creative conduct related not only to the development and organization of the social program implementation, but to the ability to accumulate and to reasonably apprehend different kind of innovations. The realization of the social program largely depends on the professionalism of its realization. In the modern conditions of professionalism, this is a major criterion for the qualities of the program. In this aspect one should tackle with care the question of attracting professionals from other countries.
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