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social
full discussion of this aspect and also of the economic implications of security measures in other papers.
This paper is concerned with the perspectives for the task to be carried out.
are
at
2. Social security programmes in some developing countries of Asia an enbryonic stage, whilst others have attained wide coverage of persons and of contingencies. National economic, social, political and administrative factors having a bearing on social security policy also differ considerably. Consequently, the needs and prospects for the development of social security schemes also vary widely. They can, however, be examined in relation to the benefit branches and to the scope of protection of persons. For the purposes of clarity, these two aspects are discussed separately but, of course, in the process of development of social security schemes decisions have to be taken as to whether the next priority should be given to new benefit branches or to more persons. It would be regarded as inequitable for a comprehensive scheme to evolve and be applied to a comparatively small segment of the population; there should be a preference for extending the existing schemes to more persons, but only in accordance with the balance of the relevant economic, social, financial, administrative and medical factors. For example, some groups, such as the self employed, may pose serious problems which would prevent their inclusion before the main groups of employees are covered in respect of additional benefit branches. Accordingly, a flexible and pragmatic approach is desirable within the framework of a positive policy for expansion of the social security scheme in the most feasible, effective and equitable manner,
Initial development of social insurance schemes
3.
The earlier paper1 surveying the social security situation in Asian developing countries indicated that there is a reliance on employers' liability schemes for the contingencies of employment injury, sickness and maternity, all essentially of a short-term nature, and also that to a certain extent national provident funds are used for long-term contingencies, although in both instances there is a decided trend towards the use of social insurance methods. Public health services have a prominent role, and are functioning in conditions of acute scarcity and maldistribution of resources. Public assistance measures have some importance in a few countries. The scope of social insurance schemes, generally, is somewhat limited in respect of the contingencies and persons covered. Generally, they are at the stage of development in which they are concerned more with the short-term than the long-term risks, and the persons protected are mainly wage earners concentrated into medium or large-scale establishments. The evolution of social insurance schemes in this way has been not only a matter of administrative expediency, but also a response to the social needs of the new class of first generation industrial workers, who are heavily dependent upon their earnings and thus require income protection. It is essential to society and to the economy that such workers. should have а sense of security and permanence. Social security is one element in a wide range of social policies, but clearly has a valid function. This is most evident in the case of the short-term contingencies which are all widely understood by and applicable to the workers concerned, particularly the younger element, which predominates in the urban wage-earning populations. Measures which meet pressing needs for medical care and cash benefits have a considerable general appeal and impact, which cannot be claimed for provisions in respect of the more renote contingencies of old age, invalidity and death, although these are highly important and essential elements in the full programme of social protection to be evolved and extended to these workers.
4. However, there are considerable social, cultural, economic and political differences between countries and it cannot be assumed that it is invariably more advantageous to give first priority to these short-term contingencies. In certain circumstances, strong reasons may exist for meeting the longer-term needs before making provision for all of the contingencies of employment injury, sickness and maternity. If the existing protection in respect of the latter is at an adequate level, and there is a significant proportion of the urban population for whom cld- age protection is urgent, particularly so if there is extensive erosion of family solidarity, governments may well opt for pension schemes. Other considerations may be the prospective accumulation of large reserves for use in the financing of national development projects, some of which
may have a direct bearing on the provision of social protection, such as
improvement of
1 "Social Security in Asia" (ASS/II/1/1974).
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