1 Published by: Friedrich Ebert Foundation Office Bulgaria P.O. Box , Knjaz Boris I Street 1000 Sofia, Bulgaria Authors: Marija Stambolieva, Reima Ana Maglajliæ, Ešref Kenan Rašidagiæ, Sören Keil, Predrag Bejakoviæ, Davorka Vidoviæ, Davor Paukoviæ, Vanèo Uzunov, Suzana Bornarova, Drenka Vukoviæ, Natalija Perišiæ, Jelena Dzankiæ, Slaviša Orloviæ, Zinka Kolariè, Anja Kopaè Mrak, Tatjana Rakar, Igor Guardiancich Responsible: Stefan Dehnert, FES Berlin / Marc Meinardus, FES Sofia Editors: Marija Stambolieva and Stefan Dehnert Language Editing: Claire Poole Final Editing: Michaela Mahler, Margarita Kurochkina Cover Design: Maria Tasseva Layout: Vladimir Vatkov Printed by: Grafimax 02 LTD ISBN Sofia, Bulgaria, 2011
2 Welfare States in Transition 20 Years after the Yugoslav Welfare Model
4 Table of Contents 3 Table of Contents Stefan Dehnert Foreword... 5 Marija Stambolieva Introduction... 7 Reima Ana Maglajlić, Ešref Kenan Rašidagić Socio-Economic Transformation in Bosnia and Herzegovina Sören Keil Social Policy in Bosnia and Herzegovina between State-Building, Democratization and Europeanization Predrag Bejaković The National Model of the Welfare State Tradition and Changes: The Case of the Republic of Croatia Davorka Vidović, Davor Pauković Welfare State in Transition: Political Transformations. The Case of Croatia Vančo Uzunov Socio-Economic Transformation and the Welfare System of the Republic of Macedonia in the Period of Transition Suzana Bornarova Development of the Social Protection System in Post-Communist Macedonia: Social Policy-Making and Political Processes Drenka Vuković, Natalija Perišić Opportunities and Challenges of Social Security Transition in Montenegro Jelena Dzankić Political Transformations: Welfare States in Transition Montenegro: A Long Drive Down a Tough Road Drenka Vuković, Natalija Perišić Social Security in Serbia Twenty Years Later Slaviša Orlović Political Transformation and Socio-Economic Changes in Serbia Zinka Kolarič, Anja Kopač Mrak, Tatjana Rakar Welfare States in Transition: the Development of the Welfare System in Slovenia Igor Guardiancich Slovenian Social Policy in a Consensual Political System: the Dilemmas of a Delayed Transition Marija Stambolieva Conclusion: The Post-Yugoslav Welfare States from Legacies to Actor Shaped Transformations About the Authors
5 4 Welfare States in Transition 20 Years after the Yugoslav Welfare Model
6 Foreword 5 Foreword Stefan Dehnert When the Friedrich-Ebert-Stiftung started its regional project in South-Eastern Europe in the year 2000, one issue was at the top of the agenda the social dimension of the post-yugoslav and post-war transition process. Neglected by many, the social consequences of war as well as the weaknesses inherited from the past represented a serious threat not only to the citizens of the region but also to all ambitions of the International Community to appease and stabilize South-Eastern Europe it constituted a veritable threat to peace. The Friedrich-Ebert-Stiftung, which draws its foundations from the traditions and values of social democracy, chose to highlight the need that economic and political transition has to go hand in hand with social protection. Thus, we promoted the view that policy makers should keep an eye on the pillars of the welfare state, which came under high pressure due to increasing unemployment, economic collapse, regional disintegration and rising numbers of people depending on social remittances. The first product as an offspring of a regional debate of academics was the publication Addressing Emergency: Welfare State Reform in South Eastern Europe which was published in December It was supposed to give an overview of the situation, the perspectives of the social dimension of the transition process and debate the importance social security and employment have for the development strategies in the countries of the region. The main proposals from this debate were to establish a robust essential-bottom-line system of social protection, to introduce an effective system of taxation and finally yet importantly, the political determination to drastically reduce public expenditure for purposes that for the time being should no longer have priority. The European Model of the welfare state, which at the time comprised of the affluent member states to the European Union, was too ambitious to serve as a prototype for the region. On the other hand, the inherited welfare state model proved to be unsustainable in the new environment of increasing number of risks and welfare dependent people. Recommendations for welfare state reform therefore aimed at the most crucial threats to people slives and living conditions. A package of effective policies that took into account the economic constraints prevailing throughout the region was developed. Concentrating on a few policy fields in which, under the given circumstances, most value added in terms of social inclusion can be obtained, a selection of priorities emerged. Defined as essentials, education and health-care have been identified as the main policy areas on which inclusion policy in South Eastern Europe should concentrate The improvement of the capacity of the labour market to provide jobs has been proposed as a third pillar of social inclusion in SEE. A series of country studies followed which referred to the main findings and essentials as described above. The whole process of this regional debate was then wrapped up in a conference and publication, entitled Social Inclusion in South-East Europe National and Regional Policy Priorities for a Social Europe. What was still lacking was a stocktaking of the welfare states in the Western Balkans that could give an overview and allow a comparison including the development path the post-yugoslav countries have been taking since the dissolution of the socialist federation.the consultations in the previous period have shown that there is a lack of deeper analyses that could help understand the state of affairs over a longer period of time. Especially relevant and comparable data was missing, which is another confirmation that social policies were of lesser priority compared
7 6 Welfare States in Transition 20 Years after the Yugoslav Welfare Model to other areas during transition. Considering the fact that even after twenty years of transitional period, social problems, such as unemployment, poverty, exclusion, still remain a significant proportion. The need for a comprehensive overview of the social security systems became obvious. We consider this publication basic background reading facilitating better understanding of the developments and political decisions affecting the welfare of societies, as well as complementary to other completed or planned analyses and policy recommendation documents. We also hope that it will wake the interest in the region and give its necessary attention among the wider academic community, policy makers and the public.
8 Introduction 7 Introduction: Welfare States in Transition 20 Years after the Yugoslav Welfare Model Marija Stambolieva Introduction The 20-year anniversary of the disintegration of the Socialist Federal Republic of Yugoslavia (SFRY) and its secession into independent states is a good opportunity to reflect on what happened during this so-called transitional period from socialism into market-economy, from communism into democracy. In the transformation literature, there are numerous authors who study the post-communist transformations 1 of the economies, political systems and societies in the former communist countries. What we are particularly interested in is what happened to the strong social states 2, which in the closed economies guaranteed basic standards of income, healthcare, social protection, education and housing to the population, and which under the new conditions of opening the economy to the market principles were bound to undergo changes. Our attention in this publication is turned to the former Yugoslavia, for several reasons. Firstly, not all the former communist states were the same, and thus there was no 1 Both the terms post-communism and post-socialism are used to describe the same notion, although the term postcommunism is more common. An attempt to define postcommunism is found in Sakwa (1999,p.3): Open University Press, where the author writes that Postcommunism can refer either specifically to the 27 countries in Eurasia that at some point were part of the post-war communist order, together with Mongolia and the Asian and Caribbean states that are in various stages of abandoning communism (China, Vietnam, Laos, North Korea and Cuba) or more broadly to the global post-socialist epoch inaugurated by the fall of the state socialist regimes in ( ) Thus post-communism has both a universal and a specific meaning. Generally the concepts used to describe the changes after 1989 in Eastern Europe are summarized under the framework of the transformation theories, however, there is also an attempt to develop a separate concept of post-socialist research which critically assesses the transition theories (Segert, 2007). 2 In this volume the terms social and welfare are both used as synonyms. single communist welfare model. Unlike the rest of the Soviet bloc, Yugoslavia practiced a semi-open economic and political system, built upon the self-management principle so, accordingly, a specific Yugoslav welfare model was created. Consequently, there is the question how this model coped with the new circumstances, which parts of it survived and how it developed in the separate seceding states. Secondly, the states of the former Yugoslavia during the first decade of the so called transition from one system to another faced war and a series of mutual conflicts, whose devastating effects left serious consequences on the development of previously some of the most developed and most advanced communist states. Thirdly, out of the European states, the countries of the former Yugoslavia are least integrated in academic research. Scholars are primarily interested in the developments of the countries in Central and Eastern Europe (see for example Baum- Ceisig, Busch, Hacker, & Nospickel, 2008; Cerami, 2006; Cerami & Vanhuysse, 2009; Inglot, 2008). This could partly be a result of the lagging behind in the European integration processes and partly because of the lack of reliable and comparable data. Except for Slovenia, for the rest of the states only sporadic and incomplete data exists, which aggravates the process of getting the whole picture of the region and its comparison to the rest of Europe and eventually the European Social Model. Finally, certain contemporary processes like globalization and internationalization, demographic changes, complemented by the current global financial crisis, challenge even
9 8 Welfare States in Transition 20 Years after the Yugoslav Welfare Model the most stable social systems. Welfare state reform has therefore reached the top of political agendas in the developed countries 3. In such cases, the weaker states are more vulnerable and their existence in the given form will naturally be brought into question. Having all the above-mentioned in mind, we consider that it is necessary to see and understand the processes of construction and change of the social policies and systems, in order to be able to predict future developments or give recommendations. Objectives 3 In many industrialized countries, the welfare state has come under pressure since the 1990s as a result of demographic change, high public debt and low employment rates, triggering a host of reforms (Busch, 2010, p. 9). 4 The states of former Yugoslavia are the six republics: Slovenia, Croatia, Bosnia and Herzegovina, Montenegro, Serbia and Macedonia. Within Yugoslavia, Kosovo, like Vojvodina, was an autonomous region, part of the state of Serbia. After the breakup of Yugoslavia, in particular from 1999 until 2008, Kosovo was a UN administered territory according to the UN Security Council Resolution In 2008 it proclaimed independence. For the purpose of this research, we decided to leave out Kosovo, due to its specificity and indirectly the specificity of its welfare system. Instead, we decided to include Slovenia, which is often excluded from comparative research with the other Balkan states. We considered that it is important to show the data and developments in the Slovenian social policies in comparison to the other states that are part of this research, because of the Yugoslav welfare model as their common starting point. The main goal of this publication is to show the developments of the welfare states in the former Yugoslavia 4, after its disintegration up to the present date, especially on the examples of the pension- and health-care systems, the labour market and social inclusion policies. It does not have the ambition to develop an analytical or theoretical framework for the study of these welfare states. However, it does attempt to provide an extensive overview of the different welfare systems developments, all-encompassing and comparative statistical data and a comprehensive portrayal of the most relevant actors who influenced the shaping of the welfare policies. The idea is to provide sufficient and yet succinctly presented material in one place, which could be used by researchers and policy-makers for future analyses. Methodology This publication is the final product of a project that was supported by the Friedrich Ebert Foundation and was carried out in The project s activities included commissioning country case studies, the organization of a consultation workshop and finally the publication of results in As the main goal of the project was to demonstrate the developments of the welfare states in the post-yugoslav states and to contribute to better understanding of the welfare models that evolved during the twenty years of post-socialist transition, two types of studies per country were commissioned: - a study describing the transformations of the welfare system (pension-, health-care system, labour market and social inclusion policies); - a study describing the political processes that shaped the welfare system. The authors who wrote the country case studies were selected under an open call. The chosen authors are researchers with a deep knowledge of the country in question and expertise in the topic. In order to assure comparability of the case studies, a consistent set of thematic guidelines was developed and distributed to the authors. The first type of studies shows the development of the welfare system, identifying where changes occurred over time and in which way. For that purpose, wide-ranging and comparative information on the pension-, health-care policies, the labour market and social welfare is depicted. Furthermore, each study is supplemented by a table of statistical data containing a selected set of socio-economic indicators. One of the bigger challenges in the preparation of
10 Introduction 9 the studies was firstly finding and collecting data from the entire period of transition after the collapse of Yugoslavia, and secondly their display according to a unified methodology for the sake of mutual and international comparability. Nevertheless, that is exactly one of the main goals of this publication: through relevant and comprehensive data to merge the sporadic and partial pieces into a complete picture of the successor states of Yugoslavia. The second type of studies establishes the relationship between certain actors and processes and the building of the national welfare system. As the studies show, there are many actors, who individually or through certain mutual interconnectedness, play a certain role in the shaping of the welfare system or its parts. In this, some actors have more, others have less influence and some promote changes, while others oppose them. These studies aim at identifying the most relevant actors and their role in sustaining, reforming, creating and/or (not) implementing welfare policies. Such are primarily the political parties, but also other domestic actors, for example, the trade unions, the business community, civil society, interest groups, the public administration, religious communities etc. Moreover, the international factors, like the international financial institutions and the European Union, appear as particularly influential. Apart from the actors, the studies have the intention of identifying the circumstances that influenced the national welfare systems, such as the wars, conflicts, inherited or generated social values etc. Hence, the studies contribute to the provision of a comprehensive picture of the political and social developments in the past twenty years of transition and the place of the social policies among them. In order to help the reader untangle the complex web of actors and circumstances, the authors have complemented the papers with tables, where the main domestic actors and their position in the political system are presented in chronological order, along with a reference to the main welfare policies undertaken during the given period. The tables are prepared according to a unified pattern and provide a concise overview of the issues dealt with in the papers. The only exception in this sense is the paper from this category covering Bosnia and Herzegovina. All the researchers came together at a workshop held in Skopje in October 2010, where all the papers were presented and discussed. The given feedback and the mutual consultations were later incorporated in the final versions of the papers. The set of guidelines were revisited and all the papers were adjusted in connection to the type of information that they should supply. A thank you note is in order for Prof. Dr. Dieter Segert from the University of Vienna, who provided the concluding remarks, by examining the potential place of these contributions within the study on post-socialist transformations. Last, but not least, our gratitude goes to Prof. Dr. Wolfgang Schroeder from the University of Kassel, who recognized that there is a gap in information and knowledge about the region and its welfare states and unreservedly supported this project from the initial phase, which modestly aims to reduce this gap and to contribute to the integration of the region in the European academic thinking. Content As already elaborated before, the papers follow the same pattern and try to depict the situation in the separate states, starting from the common Yugoslav background, its legacies and the new and specific circumstances that marked the transitional period. The first decade after the break-up of Yugoslavia is most difficult to unfold, primarily
11 10 Welfare States in Transition 20 Years after the Yugoslav Welfare Model because of missing information and internal and regional instability. The difficulty of collecting reliable data is most evident in the case of Bosnia and Herzegovina. Maglajlić and Rašidagić underline this problem and do not insist upon asserting the veracity of the figures assembled from various sources for this purpose. They nevertheless go on producing a comprehensive picture of the entire Bosnian welfare system that is actually a myriad of social, health and pension systems in Bosnia and Herzegovina. Their contribution in this volume demonstrates a system that is residual from previous socialist times, financially and organizationally weak, deeply troubled by the consequences of war and fragmented along ethnic lines. It is therefore that the welfare policy does not live up to its purpose in Bosnia and Herzegovina, leaving many people either outside of the system or barely touching the safety net. Only the payments to war veterans are highest and most stable. In the other contribution on Bosnia and Herzegovina in this volume, Keil identifies the war veteran groups, together with the invalid associations and groups of those affected by the war as important pressure groups in the Bosnian political system. Except for certain concessions being made based on ethnic bias and clientelism, social policy was not a priority for the Bosnian decision-makers and remained incoherent. Keil identifies the ethnic divisions, the high decentralization and the neglecting role of the international community as key factors in this. The following 5 case of Croatia is quite the opposite of Bosnia and Herzegovina. There is neither a lack of statistics nor was the country s population as seriously affected by the dissolution of the Yugoslav welfare state. Bejaković writes, Over the last 15 years Croatia has achieved impressive economic and 5 The country cases are presented in this volume in alphabetical order. social progress. All the parts of the welfare system have had a wide coverage base that even expanded to include new categories that emerged as a result of the civil war. The high levels of public spending have on the other hand put high pressure on the welfare state. The fiscal deficits were the biggest reason for the initiation of reforms, according to Vidović and Pauković. Major reform was carried out only in the pension system, by the adoption of a model previously developed by the World Bank, introducing a mandatory fully funded private pillar. This was enabled also thanks to the practically non-existent opposition, unlike, for example the healthcare sector, where strong opposition to mandatory supplementary health insurance for covering participation for service provided in primary health care appeared. Generally, the Croatian public has demonstrated intense concern regarding the reform of the welfare system and kept a strong feeling of social solidarity, while the parties, especially after 2007, have started to push for a transformation of the welfare state according to the needs and challenges brought by modern economy. Macedonia is described as a hybrid model which seems to borrow different elements from almost all other models: the Yugoslav, the Nordic, the liberal and the Southern- European 6. Bornarova further describes that in the beginning, social welfare was used as an instrument to preserve social peace in the country and as benefits and subsidies have been scaled down by a market and cost dominated system, and as pressures from the international community to downsize social 6 Gøsta Esping-Andersen became most renowned for his book The Three Worlds of Welfare Capitalism (1990) where he distinguishes three major types of welfare state: liberal, conservative and social-democratic, connecting these with variations in the historical development of different Western countries. The Southern-European Model was later added to this classification (Ferrera, 1996; Leibfried, 1993; Rhodes, 1997). For a more detailed elaboration on the typologies of welfare state regimes in the post-communist states see the conclusion by Stambolieva in this volume.
12 Introduction 11 expenditures have intensified, many entitlements, services and institutions have been threatened. Unemployment has been one of the biggest problems of Macedonian transition (around 30% and more) and one of the most important factors for poverty and social exclusion.however, none of the governments has been able to curb this problem, despite the fact that employment policies have been on the top of priorities on their social policy platforms. In reality, as we can see from Uzunov s contribution, since 1997 rights to unemployment insurance have been reduced, while active labour market policies have been only recent as well as symbolic. The labour market reforms are considered as one of the least effective reforms in Macedonia. The pension system, as in Croatia, was reformed according to the World Bank model. The developments in the health-care sector would be most difficult to define, due to the contradictory nature of various measures. Some of the keywords used both by Uzunov and Bornarova are: statutory health insurance, privatization, promises, politicization, and poor quality. Overall, the Macedonian welfare system is characterized by hasty, ill-informed and unsustainable solutions (Bornarova, this volume), and therefore, looking back twenty years, it could hardly be summarized as a success story. The authors identify also the factors which have contributed to this, among which: the sluggish economic growth, abridged financial capability, increased influence of international financial institutions and lack of consensus about preferred social model (Uzunov, this volume). Despite the general dissatisfaction with the social protection policy, the public was unable to mobilize, as trade unions and civil society are weak. The social policies were primarily a matter of ad hoc, rarely aforethought, international and national political geometry. Serbia and Montenegro were the only two former states that stayed together after the dissolution of the SFRY. The joint union lasted until 2006, when both countries declared independence. Although Serbia and Montenegro shared the same destiny, the cohabitation was far from ideal, as there were common disagreements between the governments of the two countries, which culminated after the war in Kosovo in Each country then took its own responsibility for transformation and reform. In general, the transition of Montenegro and Serbia commenced later than the rest of the Yugoslav republics, because of the political and economic crisis under the Milošević regime during the nineties. As Dzankić puts it, Montenegro has generated a hybrid model that seeks to integrate the legacies of the socialist system into the new model of welfare capitalism. The socialist legacy in Montenegro is mostly pronounced in the health-care sector, where the only discontinuity with the socialist period is the introduction of voluntary health insurance in 2004 (Vuković & Perišić, this volume) and even that is not fully functional and depends on the completion of a second phase of the project of voluntary health insurance introduction. Otherwise, the organizational structure and the public ownership have remained unchanged. In the pension system reform, the Montenegrin government opted for the introduction of the third pillar (voluntary fully funded) before the second one (mandatory fully funded private pillar), which is not yet in place, thus not entirely copying the World Bank model. The relatively slow and gradual transformation of the welfare system was made possible because of the political continuity and lack of major power shifts. Major disruptions to the existing welfare system could have resulted in a loss of voters and therefore the parties in power have been reluctant to make substantial reforms and have focused primarily on short-term measures. Especially
13 12 Welfare States in Transition 20 Years after the Yugoslav Welfare Model in recent years, there has been growing public dissatisfaction with the state of affairs in the country, however, the continuous support for the government in view of social welfare policies, according to Dzankić was the prevalence of statehood and identity over social issues, the generous social safety nets inherited from before and the electoral promises. The pace of reforms has been unhurried in Serbia as well. As a consequence of the Milošević regime, there was economic and political isolation of the country, and accordingly socio-economic collapse, which contributed to massive pauperization of the population. The pressure from the socio-economic collapse further contributed to a crisis of the social security system, whose functionality was brought into question. After the bringing down of the Milošević regime, it was the task of the future governments to not only transform, but firstly rebuild the social security system. Orlović writes that in this the reformative governments after 2000 ( ) took care about social programs and habits of citizens formed in the time of communism. He further cites Mijatović 7, who explains Serbian transition as a combination of prevailingly liberal economic reforms and social-democratic social policy, which certainly is not the worst combination that can be imagined. Such an argumentation may be over-exaggerated. Nevertheless, it is a fact that essentially all the parts of the Serbian welfare system (the pension and health-care system, (un) employment and social protection policies) have been relatively inclusive, although at a rather low level (see the description provided by Vuković and Perišić in this volume). Radical steps have been avoided and the welfare system has so far sustained the status of a public good. However, the benefits provided are fairly modest. For example, almost half 7 Mijatović(2005,p. 23). of the pension beneficiaries receive minimal pensions; social assistance expenditure is very low and cannot help its recipients escape the poverty zone. It would therefore be incorrect to conclude that the system provides enough security to make up for the stratification of the egalitarian Serbian society during the transition. Slovenia is the last case that is dealt with in the framework of this project and publication. Slovenia is generally perceived as the most successful post-socialist country from South-Eastern Europe, if not wider. Its welfare system is thus no exception. As the authors of the two contributions in this volume clearly demonstrate, contrary to some other post-socialist countries, Slovenia did not experience the so called welfare gap, since the transition from socialism to capitalism in socio-economic terms was rather smooth (Kolarič, Kopač and Rakar, this volume), and the country s affluence, social peace and consensualism prevented shock therapy from being applied to any policy but monetary stabilization (Guardiancich, this volume). The Slovenian social system is predominantly characterized by path-dependency and gradualism in reform.the only paradigmatic shift was in the field of the housing policy. Smaller reforms were in the field of the pension and health-care policies, where supplementary insurance was introduced. In the labour market policies, in time activation measures prevailed over passive ones. Generally public policies in all spheres of the social system are inclusive and generous. The same goes for the social protection policies, since the social assistance schemes are not merely symbolic as in the rest of the post-yugoslav countries. Such a welfare model can be attributed to the corporatist political culture and strong social partnerships, which were inclined to keep the social service provision predominantly public and based on the principles of solidarity and equality. The