Social Security in Poland – cultural, historical and economical issues

Copernican Journal of Finance & Accounting

e-ISSN 2300-3065p-ISSN 2300-1240DOI: 10.12775/CJFA.2013.0132013, volume 2, issue 2

Datawpłynięcia:20.11.2013;datazaakceptowania:20.12.2013. ∗ Danekontaktowe:[email protected],FacultyofHistoryandCulturalHeritageof

theChurch,PontificalGregorianUniversity,PiazzadellaPilotta4,00187Rome.∗∗ Dane kontaktowe: [email protected], Katedra Zarządzania Finansami, Wy-

działNaukEkonomicznychiZarządzania,UniwersytetMikołajaKopernikawToruniu,ul.Gagarina13a,87-100Toruń,tel.566114634.

StaniSław adamiak*

Pontifical Gregorian University

Ewa ChojnaCka, damian walCzak**

Nicolaus Copernicus University

SoCial SECurity in poland – Cultural, hiStoriCal and EConomiCal iSSuES

Keywords:socialsecuritysystem,Catholicsocialteaching,socialsolidarism.

Classification J E L: H55,H53,A13,E02.

Abstract: Inthefirstplace, thepaperanalysesthecultural-historicalbackgroundofthesocialsecurityinPoland.GiventhelargelyenrootedCatholicismofthecountry,thedevelopmentofthesocialteachingoftheCatholicChurchissurveyed.ItisfollowedbyashorthistoryofthesocialsecuritylegislationinPolandfrom1918to1997,andfinal-lythecurrenteconomicalconditionsofthesystemareanalysed.Thepaperconcludeswiththeopinion,thatthecurrentsystem,providinglargesocialendowmentstovario-usstrataofthepopulation,generallyanswerstheexpectationsofthepeopleaswellascorrespondstoCatholicsocialteaching.

Zabezpieczenie społeczne w Polsce – uwarunkowania kulturowo-historyczne oraz ekonomiczne

Słowa kluczowe: zabezpieczenie społeczne, katolicka myśl społeczna, solidarnośćspołeczna.

Stanisław Adamiak, Ewa Chojnacka, Damian Walczak12

Klasyfikacja J E L: H55,H53,A13,E02.

Abstrakt:Artykuł rozpoczynaanaliza tłahistoryczno-kulturowegozjawiskzwiąza-nychzzabezpieczeniemspołecznymwPolsce.Zewzględunaznaczącąrolęreligiikato-lickiejwnaszymkraju,przedmiotemopisujestnajpierwnauczaniespołeczneKościołakatolickiego dotyczące tej materii. Następnie przedstawiono skróconą historię pra-wodawstwazwiązanegozzabezpieczeniemspołecznymwPolscewokresieod1918do 1997 r. oraz analizę sytuacji obecnej. Przeprowadzona analizawskazuje, że sys-temzabezpieczeniaspołecznegowPolscejestrozbudowany.Szerokizakresświadczeńprzeznaczonychdlaróżnychgrupspołecznychodpowiadazarównoogólnymoczeki-waniomobywateli, jaki ideisolidaryzmuspołecznegowynikającejm.in.zkatolickiejnaukiKościoła.

Translated by Ewa Chojnacka

Introduction

Everystateisobligedtotakecareofitscitizens.Dependingonastate’scurrentpoliticalsystem,governmentpoliciesorfinancialsituation,itdifferentiatesthescopeofsocialwelfareprovidedtoitscitizens.InstitutionalisedformsofsocialsecurityappearedinEuroperelativelylate–inthenineteenthcentury.Priortothenineteenthcentury,variousformsofsocialsecurityhadbeenprovidedbychurches,orders,gentry,communesorbyguilds.

Thesubjectliteratureisabundantindefinitionsofsocialsecurity,however,wemaydisregardthemandapproachanddefinethetermlexically.‘Security’meansprotectingfromsomething(forinstance,fromsuchoccurrencesasdise-ases,disabilities,poverty,oradvancedoldage)andtheword‘social’indicatesthereferencetosocietybothintermsofindividualbeneficiariesandintermsofcommongoals(socialsolidarism).

Asregardsthescopeofbenefits,takingintoaccountthecriterionoffinan-cing, social security comprises financial benefits (financedbypersons insu-red),benefitsreceivedwithoutpriorpaymentofcontributions(financedbythestate)andphilanthropicbenefits(financedbyexternalentities)1.

1 Whenapplyingdifferentcriteria,furthermethodsmaybedistinguishedsuchasthefollowing:theinsurancemethod,theno-contributionmethod,andthecaringmeth-od(moreinŁyskawa1999,191–192).

social security in poland 13

1.Researchmethodologyandthecourseoftheresearchprocess

Theprocessofshapingtheright tosocialsecuritybenefitswas impactedbyeconomic,social,cultural,politicalandlegalfactors.Theobjectiveofthepre-sentpaperistooutlinehistorical,culturalandeconomicconditionsofPoland’ssocialsecurity,particularlybyapplyingaresearchmethodofcriticalanalysisofliterature.UsingthatmethodtogetherwithreviewinglegalactsresultedinillustratingtherootsofsocialsecuritythatstemfromtheChristiantradition.Also,thepaperdiscussesthecurrentsocialsecuritybenefitswiththeconside-rationoftheirdegreeof(self-)financing.

Theliteratureconcerningthesubjectmatterisabundant,however,ingene-ral,itisthematicallydividedintogroupsofstudiesfocusedonhistory(Zieliń-ski1994;Aspalter,Jinsoo,Sojeung2009;Fajth1999),onthecurrentlegalandeconomicsituationofsocialsecurity(Koczur2012;Garbiec2008;Social Secu-rity…2012;Walczak2011),onphilosophicalbasicsofsocialsolidarism(Rugi-na1983)andonCatholicsocialteaching(Strzeszewski1994;Chojnicka2001;Backer 2010). Thepresent paper adopts a cross sectional approach throughadiachronicanalysisandthroughanattempttoanswerthequestionabouttheextenttowhichthecurrentsocialpolicycorrespondstotheCatholicbackgro-undrepresentedbythemajorityofthePolishsociety.

2.Socialsecurityintheteachingsofthecatholicchurch

Whendealingwiththe issueofsocialsolidarism, itspastsocialandculturalbackgroundcannotbeunderestimated.InthecaseofPolanditisnecessarytoconsider itsdeeplyrootedChristiantradition,with theemphasis laidontheteachingsoftheCatholicChurch.Inparticular,attentionshouldbepaidtotheso-calledCatholicsocialteachingthatintheinterwarperiodofthetwentiethcenturyplayedaremarkableroleamongthemajorpoliticalforces2aswellastoChristian-democraticpartiesthatshapedthesocialandeconomicsystemsinpost-warEurope.

TheBible,which lays foundations to Christianmorality, clearly indicatestheneedtotakecareofthepoor(especiallythoseharshlyexperienced–or-

2 Article114oftheConstitutionfromMarch1921saysthat:‘TheRomanCatholicreligion,beingthereligionofthepreponderantmajorityofthenation,occupiesinthestatethechiefpositionamongenfranchisedreligions’.


phansandwidows)andtosharematerialpossessionswiththosewhoreallyneedthem.InthefirstChristiancommunityfoundedinJerusalem:‘Allwhobe-lievedweretogetherandhadallthingsincommon;andtheysoldtheirposses-sionsandgoodsanddistributedthemtoall,asanyhadneed’(Acts2,44–45).Itmustbenoted,however,thatthiswasanexceptionalsituationsinceotherChri-stiancommunes,describedbySt.Paulinhisletters,didnotapplysuch‘commu-nityofpossessions’.

Christians living inearly centuriesdidnotobject the social andeconomicsystemoftheRomanEmpirebuttheyusedtorunextensivecharitableactivities.

Julian the Apostate (361–363),was a Roman emperorwho attempted tostopthedevelopmentofChristianityandtorestorethetraditionalreligionintheempire,however,hewasoftheopinionthatChristians’approachtoandtre-atmentofthepoorwasapatterntobefollowed.

Thecalltosharepossessionsdidnotexcludethesanctityofprivateproper-ty.Christianmoralityoriginates fromtheDecalogue, therefore,anyoffensesagainstpropertywere regardedas a sin against the seventh commandment– ‘thoushaltnotsteal’. Inmedieval timessystematicapproaches tomoralitywerebasedonthereferencetofurthervirtues.ThevirtueoflovedemandedChristianstohelptheirneighboursbygettingridoftheirmaterialpossessions.Monkswere expected to practice this virtue heroically throughmaking thevowsofpovertyandrepudiatinganyoftheirmaterialpossessions.Actually,itremainedanidealonlyandveryfewwereabletoachieveit.Asamatteroffact,atthattimesocialrelationshipswereregulatedbythevirtueofjustice.Itwasconsideredrighteoustoprovideeverybodywithwhattheylawfullydeserved,so,consequently,therewasnoroomforanyformof‘socialsecurity’–thisco-uldcomeonlyfrommercy.Theexceptionwaschildren’ssupportgiventothe-irparentsand that resulted from theobligation createdwhenparentsweretakingcareofthemaswellasfromthefourthCommandment;hospitals,asy-lums,schoolsweretreatedinasimilarway.Runningthemwastheobligationofthechurchandofaffluentcitizens,however,itwasareligiousobligationandbasicallyitdidnotcorrespondtothevirtueofjustice.Itisworthremindingthedoctrineoftheso-called‘needlessgoods’(bona superflua),whichsaysthatanyexcesspossessionsbelongtopoorpeoplebythevirtueofjustice;itissobecau-sethevirtueof justiceconcernsnotonlyinterchangeablejustice(i.e.,honestfulfilmentofmutualobligations)butalsodistributivejustice(i.e.,ajustdistri-butionofgoods).


Thedoctrineof ‘needlessgoods’wasproclaimedbyeminent theologians,includingthemostfamousone,St.ThomasAquinas(1225–1274)(Summa The-ologiae,IIa–IIae,q.66,a.7,sc),however,nomajoreffortsweremadetoimple-mentthedoctrinesinceitwasdifficulttodefinepreciselywhat‘excessgoods’were(Strzeszewski1960).Nevertheless,in1959CardinalStefanWyszyńskici-tedthedoctrineaskingthefutureEcumenicalCounciltoremindtheaffluentcitizensabouttheirobligations(Wyszyński1959,684).

Actually,whathasbeen emphasised for centurieswas the inviolability ofproperty,whichallowsbreachingitonlyinexceptionalsituationssuchas,forinstance,immediatedangerofdeath.Atthebeginningofthetwentiethcentu-rySt.JózefSebastianPelczarstressedthatthepoorcannotexpecthelpbythevirtueofjustice–theyshouldexpectitonlyfrommercyshownbyrichpeople;inbishopPelczar’sview,theobligationtohelpshouldbeascribedtothefamily,nexttotheparishandintheendtothewholesociety.Thestateshouldbethelasttoprovidesuchhelp.Inthebishop’sopinion‘ataxpaidbythewealthyforthepoor’,despitesomeadvantages, ismorallydubious,sinceasamandatorycontributionitreleasestherichfromtheobligationtogivealms,makesthepoorthinkthattheyhavetherighttomakedemandstosocietyanddoesnotguaran-teethathelpwillbegiventothosewhoneeditmost(Pelczar1915,233.30–31).

Thisscepticalattitudeof theChurchto ‘a taxpaidbythewealthy for thepoor’ was partially justified by themulti-century agrarian social structurewithinwhichnaturalandbasicsocialsecuritywasprovidedbyamultigene-rationalfamily,therefore,therewasnoneedforpensions,kindergartensandnurseries.Mercyshownbysocietyconcernedprimarilythosepeoplewho,fordifferentreasons,wereoutsidethisbasicfamilystructure.Thenineteenthcen-turyindustrialrevolutionresultedinrapidurbanisationandinanincreasedworkingclasswhich,inturn,ledtotheweakeningoffamiliesandsocialties,intensificationofsocialistandcommunistactivitiesthatdemandedanewwayofdistributinggoodsandultimateremovalofprivateproperty.TherelationsbetweenthegroupsofsocialistsandcommunistsandtheChurchbecameho-stileduetotheatheisticviewsrepresentedbytheformerandduetodiscredi-tingthealreadyestablishedsocialorderandpropertyrightswhichintheviewoftheChurchresultedfromthenaturallaw.However,withinthesameChurchwecouldobserveanincreasingawarenessofsocialinjusticeresultingfromthedevelopmentofcapitalismandthatinjusticecouldnotbecompensatedevenbyextensiveandfarreachingphilanthropicactivities.Theturningpointwasthepublicationofanencyclicaltitled‘Rerum novarum’(AboutNewThings)byPope


LeoXIIIin1891.ItisconsideredtobethefoundationofmodernCatholicsocialteaching,whichurgedbelieverstoconsidertheproblemsoftheworkingclassandacknowledgetheneedofmaintainingprivateproperty,however,theyalsostressedthatthefreemarketeconomicactivitymustbecontrolledbymoralprinciples.

The Catholic social teaching have been developed by the subsequent po-peswhotriedtoencouragebelieverstobasetheirsociallivesonmoralprinci-plesand,inparticular,ontheprincipleofsubsidiarity(PiusXI,Quadragesimo Anno,5),ontheprincipleoftheconcernforcommongood(JohnXXIII,Mater et Magistra,65; JohnPaulII,Centesimus Annus,47),andontheprincipleofsolida-rity(JanPawełII,Sollicitudo Rei Socialis,40).

Asthefirstoftheaboveencyclicalsobjectedstatismandanexcessivecon-centrationofobligationsandresourcesinthehandsofthestate(whichfollo-wedthelogicsofsocialism),thesecondandthethirdonesobjectedunfetteredliberalism.

Christian-DemocraticpartiesthatruledinmanycountriesafterthesecondworldwarfollowedtheCatholicsocialteachingandasaresultoptedforbu-ildingwelfare statesandwerebackedby left-wingparties in theirendeavo-urs.TheprinciplesoftheCatholicsocialteachingwerefrequentlyreferredtoinPolandafter1989.Thesereferencesincludedinmultiplestatementsbypo-liticiansandclergymenwereoftenpurelydeclarativeinnature.TheCatholicsocialteachingwasoftenunderstoodasdeclarationsmadebytheChurchoncontroversialissuesconcerningmorality,bioethics,andneutralityofasecularstate3.Itmustbeunderlined,however,thatdependingonthetimeperiodcon-

3 AtpresenttheissueofsocialsolidarisminPolandiscontainedintheprogrammesofseveralpoliticalparties.Apoliticalgroupingwiththenamethatismeaningfulinthecontextofthesubject-SolidaryPoland(Solidarna Polska),initsprogrammedeclarationusesthefollowingformulation:‘socialsolidaritymeansthatthestateprovidessocialsecuritytothenationandsharestaxburdenequitably’.LawandJustice(thestrongestoppositionparty)insertedthefollowingformulationinitspoliticalprogramme:‘Soli-daryPolandisacountryinwhichthefruitoftheeconomicdevelopmentshallbesharedbypoorercitizensandeconomicallylessdevelopedregions,acountryinwhichsettingupafamilyandraisingchildrenshallberespectedandsupportedbythestateinwhichcitizensareguaranteedadequatepensionsandsupportindifficultsituations.’ThePol-ishPeople’sParty(acoalitionpartyinthePolishgovernment)initsresolutionfromthe11thCongressheldon07November,2012inafragmentconcerningtheformulationofits ideologicalprogrammedeclares that: ‘theprinciplesofourprogrammeresultingfrom[…], formulatedon thegroundsof theprinciplesof socialmarketeconomy,hu-manitarianism,ChristianethicsandthesocialteachingoftheCatholicChurchcontrib-


sideredtheemphasisoftheCatholicsocialteachingisshiftedtodifferentissu-es.Theencyclicalwrittenin1991byPopeJohnPaulIICentesimus Annus (‘TheHundredthAnniversaryofRerumNovarum’)wastheclosestinitsmeaningtotheaffirmationoffree-marketcapitalism,whileCaritas in veritate (‘CharityinTruth’)issuedbyPopeBenedictXVIin2009isconcernedprimarilywiththesi-gnificanceofsolidarismunderstoodalsoasaglobalphenomenon.

3.ThebeginningsofsocialsecurityinPoland

ThedevelopmentofPoland’ssystemofsocialsecurityattheendoftheninete-enthcenturywasconditionedbythehistoricalandculturalsituation(shapingtheCatholicsocialteachingandthegrowthofsocialistparties).AfterPolandregaineditsindependencein1918,thepreviouslycreatedlegalandinstitutio-nalsolutionswereused,however,theintensityoftheusevarieddependingonthepartofthecountry(thePrussianPartitioncouldboastofthebestdevelo-pedsocialsecuritysystem).Therefore,theinterwar-periodPolandrealisedsi-multaneousprocessesoftheunificationandadjustmentofthelegalbasisforsocialsecuritytothenewsocio-economicconditions.

Undertakingtheabove-mentionedactivitieswasnecessary.Thefirstreasonforundertakingthoseactivitiesresultedfromthefactthatafterthefirstworldwarsociety,asawhole,becamesignificantlypoorerandfamilieslosttheirabi-litytofulfilsomeoftheirsocialsecurity(welfare)functions.Secondly,theacti-vitieswererelatedtotheeconomicreconstructionofthecountry,thestructu-ralchangescausedbythedevelopmentofindustryandtheworkingclass,andbytheaforementionedroleplayedbytheChurchinthecountry.Asaresult,wi-thinarelativelyshorttimeperiodoffiveyearsafterregainingindependence,thefollowingregulationswereintroduced:onsicknessinsurance(1919–1920),ontemporarysupportfortheunemployed(1919),onunemploymentinsurance(1924),onaccidentinsurance(1923)andonsocialwelfare(1923).

utetobuildingasocialsystembasedon[…]:theprincipleofsolidarism,[…]theprinci-pleofjusticeandsociallove.’PolishprimeministerDonaldTuskinhispolicystatementfrom18November2011said:‘wewantunderthisandunderothersystemsoffinancialsupportapplyabsolutelythemethodofsocialjustice,solidarismofricherpeoplewiththosewhoareinaworsesituation’.Aleft-wingpartyYourMovedoesnotmakerefer-encetotheteachingoftheCatholicChurch,however,initsprogrammedeclarationitemphasisesthatthestateshouldtakecareofthose‘whomfatedeprivedoflifechancesandofhealth’.


Asregardssocialinsurance,in1927insuranceforwhitecollarworkerswasintroducedwhichmanifestedunfairsocialprivilegespossessedbythatgroup,ifcomparedwithagroupofphysicalworkers.Thelattergroupwascoveredbysocialinsurancein1933byvirtueoftheactonsocialinsurancereferredtoastheunifyingact(Zieliński1994,43).

Itmustbenotedthatthereexistedadditionalseparateregulationsonsocialsuppliestoselectedsocialgroups,e.g.,stateofficialsandprofessionalsoldiers(1923),PolishRailwaysemployees(1926and1929),formerpoliticalprisoners(1931),orveteransofindependencefights(1937).Thereasonforpassingthespecialregulationswasstrivingforprovidingsecuritytohonouredsocialgro-upsduetothefunctionsfulfilledbytheminthecountry,theirroleinregainingindependence,orduetoperformingworkofspecialcharacter.

Thedevelopmentof a social security systemwas stoppedby theoutbre-akofthesecondworldwar.Afterthewar,underanentirelynewgeopoliticalsituation, further legal regulations continued tobe implemented.Due to thethenpoliticalsystem(andtotheofficialnon-occurrenceofunemployment),theregulations concernedprimarily social insurances andwere reflected in re-achingnewsocialgroups,forinstance,craftsmen(1965),artists(1973),indi-vidualframers(1977),clergymen(1989),aswellasinextendingthecoverage(forexample,bytheintroductionoffamilybenefits).Theintentionwastoeli-minateselectedprivilegedgroupsandworkoutasystemofequaltreatmentofwhitecollarandbluecollarworkers4.

4.SocialsecuritysysteminPoland–thecurrentstateofaffairs

Thechangeofthepoliticalandeconomicsystemin1989necessitatedreformsoftheelementsofsocialsecurityanditsadjustmenttonewcircumstanceswi-thinthecountryandintheinternationalenvironment.ThesolutionspresentedinfurtherpartsofthepaperandconcerningsocialsecurityinPolandarecon-sonantwiththeCatholicsocialteachingsthatarecontainedalsointheencyc-licalswrittenbyPiusXI,JohnXXIII,andJohnPaulII.Ontheonehand,thegoodofawholesocietyisessentialandanindividualisobligedtosupportallpeople(duetosocialsecuritybenefitssocialstratificationismitigated),ontheother

4 Thepurposeoftheworkisnottoprovideathoroughdescriptionofthechangesanddevelopmentoflegalregulationsconcerningsocialinsurance,buttoindicateinitialregulationswithinspecificelementsofsecurity.Thedescriptionoforiginsanddevel-opmentofsocialinsurancepriorto1993canbefoundin(Zieliński1994).


hand,however,an individualconstitutesagoaland, therefore,has theright,withinreasonablelimits,totakecareofhis/herowngood(e.g.,pensiondepen-dentofthevalueoftheassetssavedbyanindividual).

Socialsecurity inPolandisdefinedbytheConstitutionof theRepublicofPoland.Article67(1)oftheConstitutionsaysthat:‘Acitizenshallhavetheri-ghttosocialsecuritywheneverincapacitatedforworkbyreasonofsicknessorinvalidismaswellashavingattainedretirementage.Thescopeandformsofsocialsecurityshallbespecifiedbystatute.’Andfurther,Article67(2)says:‘Acitizenwhoisinvoluntarilywithoutworkandhasnoothermeansofsupport,shallhavetherighttosocialsecurity,thescopeofwhichshallbespecifiedbystatute.’

TheActfrom4ofSeptember,1997ontheSectionsofGovernmentalAdmini-strationspecifiestheelementsthatshallbecoveredbysocialsecuritytreatedasaseparatesectionofgovernmentaladministration.Itremains,however,un-clearwhetherhealthcaremaybe indicatedasanelementof social security.Duetothespecificityofhealthcare,theActontheSectionsofGovernmentalAdministrationregardsitasaseparateitembut,sincehealthcareservicesarefinanced fromsocialsecuritycontributionspaidbyallcitizensregardlessoftheirlevelsofincome,undoubtedlyitdoesconstituteoneoftheelementsofthesocialsecuritysysteminPoland.Therefore,itmaybestatedthatsocialsecuri-tyiscomprisedofthefollowing: ■ socialinsurance, ■ personalandpropertyinsurances, ■ healthcare, ■ welfareservices, ■ complementarysocialbenefits, ■ rehabilitationofthedisabled.

ThemajorlegalactsthatregulatetheelementsofthesocialsecuritysysteminPolandincludethefollowing: 1. TheActof13October1998onSocialInsuranceSystem(Journaloflaws

of2009,no.205,item1585withlateramendments), 2. TheActof17December1998onOld-AgeandDisabilityPensionsfrom

theSocial InsuranceFund(Journalof lawsof2009,no.153, item1227withlateramendments),

3. TheActof21November2008onCapitalPensions (Journal of lawsof2008,no.228,item1507withlateramendments),


4. TheActof28August1997ontheOrganisationandOperationofPensionFunds(Journaloflawsof2013,no.0,item989),

5. TheActof19December2008ontheOld-AgeBridgingPensions(Journaloflawsof2008,no.237,item1656withlateramendments),

6. TheActof19December2008ontheOld-AgeBridgingPensions(Journaloflawsof2008,no.237,item1656withlateramendments),

7. TheActof25June1999onSocialSecurityCashBenefitsintheEventofSicknessandMaternity(Journaloflawsof2010,no.77,item512withla-teramendments),

8. TheActof30October2002ontheSocialSecurityintheeventofOccu-pationalAccidentorDisease(Journaloflawsof2009,no.167,item1322withlateramendments),

9. The Act of 28 November 2003 on Family Benefits (Journal of laws of2006,no.139,item992withlateramendments),

10. TheActof27June2003ontheSocialPension(Journaloflawsof2013,no.0,item982),

11. TheActof30April2004onthePre-RetirementBenefits(Journaloflawsof2013,no.0,item170),

12. TheActof20December1990onFarmers’SocialInsurance(Journaloflawsof2008,no.50,item291withlateramendments),

13. TheActof27August2004onHealthCareServicesFinancedfromPu-blicFunds(Journaloflawsof2008,no.164,item1027withlateramend-ments),

14. TheActof20August2004onPromotionofEmploymentandonLabourMarketInstitutions(Journaloflawsof2013,item674),

15. TheActof12March2004onSocialAssistance(Journaloflawsof2013,no.0,item182),

16. The Act of 28 November 2003 on Family Benefits (Journal of laws of2006,no.139,item992withlateramendments),

17. TheActof07SeptemberAugust2007onAssistancetoPersonsEntitledtoAlimony(Journaloflawsof2012,no.0,item1228),

18. TheActof27August1997onProfessionalandSocialRehabilitationandEmploymentofDisabledPersons (Journal of lawsof2011,no. 127, item721).

Itmustbenoted that since themomentofPoland’s joining theEuropeanUnion,theEUlegalactshavebecomeadditionalbindinglegalnorms.


Socialinsuranceisthemostessentialandmostfrequentlycitedinmediaele-mentofthesocialsecuritysysteminPoland.TherearetwoinsurancesystemsinPoland:thecommoninsurancesystem–managedbytheSocialInsuranceIn-stitution (ZakładUbezpieczeńSpołecznych–ZUS)andtheAgriculturalSocialInsuranceFund(KasaRolniczegoUbezpieczeniaSpołecznego–KRUS)thatse-rvicesfarmers.Othersolutionsappliedcanbereferredtoasthedevelopmentsofthecommonsystem5.

Since1999acapitalsystemhasbeenoperationalinPolandunderwhichthevalueofpensionsistobedependentonthevalueoftheaccumulatedcontribu-tions6.However,everypersonthatgainstherighttoreceivetheretirementbe-nefitandduringtheperiodofhis/heroccupationalactivitydoesnotaccumula-tetheamountsufficienttoreceiveaminimumpensionwillstillholdtherighttoaminimumbenefitguaranteedbythestateTreasury(Owczarek,Więckow-ska2011).

Farmerspaylowersocialinsurancecontributionsthanpersonsbelongingtothecommoninsurancesystem.Farmersreceivesmallbenefitsthatareonlytoasmalldegreedependentonthevalueofaccumulatedcontributions(asamat-teroffacttheyaredependentonthenumberofyearsduringwhichonebelon-gedtothesystem).Aretiredpersonthatpaidcontributionsfortheperiodof40yearsisentitledtoabenefitwhichisonly7%higherthanthebenefitreceivedbyapersonwhopaidcontributionsfortheperiodof25years(Walczak2008).

Themanifestationofsolidarismwithintheold-agepensioninsurancesys-tem in Poland is the institution of family/widow’s or widower’s allowanceswhichispaidtoadeceasedperson’sfamily,providingthatpersonatthedateofhis/herdeathreceived(orwasentitledto)old-agedpensionordisabilitypen-sion.Achildisentitledtofamilyallowancesuntilachildis16oruntilhe/sheleaveseducationbutonlyuntilhe/sheturns25yearsold.Widowsareentitledtosuchallowanceswhentheyturn50yearsold.

5 Forinstance,employeesofuniformedservicesdonotpaysocialinsurancecontri-butionsandreceiveold-agepensionscalculatedbasedonthenumberofyearsworkedand theaveragesalary (in2012 the retirement regulationsconcerningemployeesofuniformedserviceswerechangedbyincreasingtherequiredlengthofserviceandmod-ifyingtherulesof thecalculationof thebasisof thebenefit), judgesandprosecutorswhofinishtheirprofessionalactivityaregrantedtheso-called‘thenon-activestatus’.

6 Nomatterwhethersocialbenefitswillbeservicedbystateorprivatecompanies(however,therearesomeplanstoimplementchangesinthefunctioningofthesecom-panies–OpenPensionFunds),theessenceofthefurtherfunctioningofthecapitalsys-temisunquestionable.


InthescopeofhealthinsurancerealisedbytheNationalHealthFund(Na-rodowyFunduszZdrowia–NFZ),everypersonthatpayscontributions(orisentitledotherwise)isentitledtofreehealthservices.Inpractice,everyPolishcitizenisentitledtohealthservices:personsemployed,personsrunningbu-sinessesandfarmersareentitledtohealthservicesduetopaymentofcontri-butions.Theirfamilymembersmayberegisteredforhealthinsurancesbythepersoninsured.Unemployedpersonsareregisteredforinsurancebyadistrictlabouroffice,andoncetheyareregisteredtheyhavetherighttoregisterotherfamilymembers.Employeesofuniformedservices(thegroupincludesthefol-lowing:military,police,theInternalSecurityAgency,theCentralAnti-Corrup-tionBureau)areentitledtohealthservicesandarenotobligedtopayanycon-tributions.Thisprivilegeisalsosharedbyjudges,prosecutors,andmembersofparliament.

ThesocialsecuritysysteminPolandisextensiveandpersonsbeinginadif-ficultsituationmaycountonvariousbenefitsincludingmaterial(suchas,forinstance, health insurance contributions, social insurance contributions, ac-commodation,meals,clothes)andcashbenefits(suchas,forinstance,regularbenefit,temporarybenefit,anallowanceforanexpenseandforspecialexpen-ses,anallowanceandaloanforgainingfinancialindependence,anallowanceforgainingfinancialindependenceandcontinuationofeducation).Socialassi-stancecanbegrantednotonlyincaseoffinancialproblems.Pursuanttotheactonsocialassistance,socialassistancemaybeprovidedinrespectoforphana-ge,unemployment,disability,prolongedorseriousillness,familyviolence,dif-ficultieswithadaptationtolifeafterleavingprison,randomeventsandacrisissituation,naturalorecologicalcalamities.

Tosumup,itmustbeemphasizedthatafewhundredbillionPLNisspentinPolandonfinancingsocialsecurity(oronlyafewofitsessentialelements).Ta-bleonepresentsselectedspendingonsocialsecurity.Inaccordancewiththeprincipleofsolidarism,thesecostsaresharedbyallcitizensforthebenefitofneedingones(ifbeneficiariesofearlierretirementrepresentingvariouspro-fessionsmaybenamedso–forinstance,policemen).Thereportpreparedfor2009–2013specifiesthefollowingamounts: 1. SubsidytotheSocialInsuranceFund(thebasicandtheonlyoneinthe

commonsystem)amountstoover30billionPLNandtheoverallcostsareincreasingdynamically,


2. SubsidytotheFarmers’PensionandDisabilityFund(thebasicandmajorfundintheagriculturalsystem)isslightlymodifiedonanannualbasisandamountstoapproximately15billionPLN.

ThecostsofhealthservicesbornebytheNationalHealthFund(financedbyallthatpayhealthinsurancecontributions)in2012amountedto60.8bil-lionPLNandwere13billionhigher than in2008.Thespendingof theStateFundforRehabilitationofDisabledPersons(PaństwowyFunduszRehabilitacjiOsóbNiepełnosprawnych–PFRON)oscillatesaround4.2–4.8billionPLN(asshownbytheReportfor2009–2013).ThespendingonsocialassistancemadebyPolishregionalauthoritiesin2012was12.7billionPLNanditwasthese-condlargestspendingaftereducation.Thisspendingexceedsseveraltimesthespendingon,forinstance,physicalculture(in2012itwas2.4billionPLN)(In-formation2009–2013).

Table 1.Selectedspendingonsocialsecurity inPolandin2008–2012(inbillionsofPLN)

2008 2009 2010 2011 2012

Social insurance Social Insurance Fund (SIF) spending 132.3 148.1 157.0 162.9 171.1

Subsidies for SIF from the state budget 33.2 30.5 38.1 37.5 38.5

Farmers’ Pension and Disability Fund (FPDF) spending 16.8 17.0 16.5 16.5 17.1

Subsidies for FPDF from the state budget 14.9 15.7 14.9 15.1 15.5

Health insurance Costs of the realisation of tasks by the National Health Fund* 47.4 57.3 58.9 60.2 60.8

Fighting unemployment The Labour Fund** 5.5 10.9 11.7 8.6 9.4

Rehabilitation of disabled persons

Current spending the State Fund for Rehabilitation of Disabled Persons*** 4.7 4.5 4.3 4.2 4.8

Social assistance Spending of communes on social assistance 10.9 11.0 12.7 12.4 12.7

* The costs of the realisation of the tasks of the National Health Fund are covered by ZUS and KRUS. ** The Labour Fund is a state target fund that is to promote employment. Financial means disposed by the fund originate from contributions paid by self-employed persons. *** The State Fund for Rehabilitation of Disabled Persons spending is financed in 80% by compulsory contributions paid by companies.

S o u r c e :compiledbytheauthorbasedontheReports2009–2013andInformation2009–2013.

TotalpublicexpenditureonsocialsecurityinPoland(coveringexpenditu-reonoldage,survivors,incapacityrelated,health,family,activelabourmarket


programmes,unemployment,housing,andother),expressedinfixedpricesin2000amountedto86,929.40millionPLNin1990,146,734.80millionPLNin1995,173,157.30millionPLNin2000to206,727.60PLNmillionin2005,andto256,441.20millionPLNin2009.Since2000,theexpenditureinrelationtoGDPhasbeenmaintainedatabout21%(20.94%in2013).ThelevelofexpenditureinrelationtoGDPinPolandissimilartotherelationshipinHungary(in2013,21.56%ofGDP),Ireland(in2013,21.59%ofGDP)andtheCzechRepublic(in2013,21.77%ofGDP).ThesizeofthespendingonsocialsecurityanditsshareinGDPdependnotonlyonthepolicyacceptedforthatmatterandregulatingthescopeofservicesfinancedfrompublicfunds,butalsoonthefinancialsitu-ationofthecountryconcerned.InEuropein2013,thehighestshareofexpen-ditureforsocialsecurity inGDPwasrecordedinFrance(33.02%),Denmark(30.79%),Belgium(30.73%)andinFinland(30.53%)(OECD.StatExtracts).

Duetothedemographicsituation,expenditureonsocialsecuritywillcer-tainlybeincreasing.In1990,inthethenEuropeanUnion,merely13.7%ofthepopulationwas65ormore,while, according to the latest forecasts, in2035theshareofsuchpersons(in27MemberStates)willbealready25.2%.InPo-land,thissharewillalsoincreasefromabout11.2to23.2%(Demography Re-port2010,66;Prognoza ludności…).

Moreover,despiteageneral antipathyshown to institutionsdealingwiththe realization of inter-generation solidarism and securing socially the we-akest(ZUS,KRUS,NFZ),theopinionthatthestateshouldprovideitscitizenswithbasiclifeneedsisverycommon(CBOS2013).Thisexpectationofthesta-te’srolecanbeascribedtotheheritageofcommunism;theyears1945–1990inPolandweretheyearsofacontinuousextensionofthescopeofobligationsoftherepublicofworkingpeople,asitwasdefinedbythethenConstitution.

5.Conclusionsresultingfromtheresearchprocess

ItmaybestatedthatPolandrealisestheideasofsocialsolidarismthroughva-riouselementsofsocialsecurity.Polandhasoperationalsystemsintheareasofsocialinsurance,healthservices,socialassistance,orsupportingunemploy-edpersons.Thesystemofsocialsecurityisstillbeingexpanded.Foryearsthenumberofsocialbenefitsofferedhasincreasedandtheirscopehasbeenadju-stedtocitizens’expectationsaswellastotheideasofsocialsolidarismorigi-natingalsofromtheteachingsoftheCatholicChurch.


Therefore,itseemsthatthesocialteachingoftheCatholicChurchconcer-ningsocialandeconomicissuesareacceptedbythemajorityofthePolishso-cietyregardlessoftheirreligiousviews.However,aconcernisthedissonancebetweenthescaleofthestate’sobligationstocitizens,asindicatedbyCBOSre-spondents,andthescaleofobligationsonthesideofcitizens.Expectingformthecommunity(onthelevelsofthecountryandlocalauthorities)toplayasi-gnificantroleinprovidingsocialsecuritydoesnotcontradicttheteachingsoftheCatholicChurch,which,inaccordancewiththeprincipleofsubsidiarity,ob-jectstothestate’susurpingtoomanyrightsinthatrespect.

Thefactorspresentedintheworkthatinfluencethescopeandthevalueofbenefitsinsocialsecurityareimportantinthefaceofanagingpopulation.The-sefactors,whichincludehistory,culture,orreligion,willaffectanincreasinglybetterfinancialsecurityofthegrowingnumberofretirees,generatingtherebytheincreasingbudgetaryexpenditure.

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Social Security in Poland – cultural, historical and economical issues

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