Interdepartmental interaction can be viewed as a kind of social interaction. The parties to the interaction are socially oriented subjects (executive authorities of the constituent entities of the Russian Federation, organizations subordinate to them, institutions, non-profit organizations and others) that achieve their goals through certain professionally specialized measures and actions.

The main ways and means of optimizing interdepartmental interaction of social institutions in solving problems of prevention of neglect and juvenile delinquency are:

Provision of interaction processes with the necessary legislative framework; scientific and methodological substantiation of complex work;

A clear delineation of functions between the participants in the interaction at all levels of collaboration;

Providing institutions with powers and funds in accordance with the functions performed and the tasks set;

Provision of management structures and institutions with qualified personnel; organization of a single information space;

Creation of a common concept of joint action;

Optimization of the work of the interdepartmental coordinating link and others.

The activities of the bodies and institutions of the prevention system to provide assistance to juveniles convicted to penalties not related to imprisonment, minors released from prison, as well as minors returning from the SUVU ZT, is carried out in accordance with the following basic principles:

The principle of interdepartmental interaction - determines the procedure for the formation of relations between the subjects of the prevention system by coordinating action plans and actions for their implementation, monitoring their implementation;

The principle of the distribution of spheres of responsibility - assumes specific performers, assigning them a certain range of tasks within the framework of departmental competence, the implementation of which is necessary to achieve the set goals;

The principle of an individual approach - is implemented through the implementation of the rehabilitation process, taking into account the individual characteristics of a particular child and family, which significantly affect their behavior in different life situations;

The principle of legality - provides for compliance with the requirements of the current legislation of the Russian Federation and the legislation of the constituent entities of the Russian Federation in working with convicted minors and their families;

The principle of complexity - involves the implementation of a systematic approach in working with minors and their families and the impact on them, taking into account all aspects: economic, legal, social, medical, pedagogical, psychological.

An important form of interdepartmental interaction is the exchange of information characterizing the situation of families and children in the jurisdictional territory and necessary for the implementation of activities in their interests, with authorities, state and non-state institutions, organizations and services.

To improve interdepartmental interaction of bodies and institutions of the system for the prevention of neglect and juvenile delinquency on the organization of preventive work with families in a socially dangerous situation, developed in accordance with paragraph 2 of Section I of the minutes of the meeting of the Government Commission on Minors and the Protection of Their Rights dated December 21, 2016 year number 14.

Appendix
to the Ministry of Education and Science of Russia
dated 23.08.2017 No. TS-702/07

Guidelines
to improve interdepartmental interaction of bodies and institutions of the system for the prevention of neglect and juvenile delinquency on the organization of preventive work with families in a socially dangerous situation

I. General Provisions

Methodological recommendations for improving the interdepartmental interaction of bodies and institutions of the system for the prevention of neglect and delinquency of minors on the organization of preventive work with families in a socially dangerous situation (hereinafter referred to as Methodological Recommendations) were developed in accordance with paragraph 2 of Section I of the minutes of the meeting of the Government Commission on Minors and protection of their rights dated December 21, 2016 No. 14.

These Methodological Recommendations are addressed to the bodies and institutions that are part of the system for the prevention of neglect and juvenile delinquency (hereinafter - the prevention system), and are designed to improve the efficiency of work on the timely identification of minors and families in a socially dangerous situation, as well as on their socio-pedagogical rehabilitation. and / or to prevent them from committing offenses and antisocial actions.

Interdepartmental interaction - joint coordinated actions (decisions) of subjects (participants) of interdepartmental interaction on the organization of preventive work with families in a socially dangerous situation;

Information interdepartmental interaction - the exchange of documents and information, including in electronic form, between the subjects (participants) of interdepartmental interaction on the organization of preventive work with families in a socially dangerous situation;

Subjects (participants) of interagency interaction - bodies and institutions of the prevention system, other bodies and organizations participating, within their competence, in activities to prevent neglect and juvenile delinquency;

The procedure (regulation) of interagency interaction is a document defining the list of subjects (participants) carrying out interagency interaction, the types of activities carried out within the framework of interagency interaction, the procedure and forms of interagency interaction, requirements for the content, forms and conditions of information exchange, including in electronic form, the procedure for monitoring and evaluating the results of interagency interaction.

II. Principles of interagency interaction

Interdepartmental interaction should be based on the principles:

Legality;

Delimitation of competence between subjects (participants) of interagency interaction;

Elimination of duplication of procedures for collecting and processing information about minors and families in a socially dangerous situation by subjects (participants) of interagency interaction;

An individual approach to organizing work with minors and families in a socially dangerous situation;

Ensuring the confidentiality of information received in the process of interdepartmental interaction.

In addition, it is recommended that the applied approaches to the methodology of classifying families as being in a socially dangerous situation and in need of preventive work against them be carried out on the basis of the principle of the presumption of the parents' conscientiousness in exercising parental rights. In accordance with the provisions of the Family Code of the Russian Federation, the upbringing of a child for parents is an integral part of the exercise of parental rights, therefore, the bodies and institutions of the prevention system, when identifying minors and families in a socially dangerous situation, are recommended to first of all recognize and respect the rights and obligations of parents. legally responsible for the child.

Thus, the principle of the presumption of the good faith of parents implies the good faith of the actions of parents in relation to their children until the relevant bodies and institutions of the prevention system (for example, the commission on minors' affairs and the protection of their rights, the guardianship and guardianship body or other authorized body) the opposite facts will be recorded and established, testifying to the unfair behavior of parents in relation to their children.

III. Subjects (participants) of interagency interaction

The organization and coordination of interagency cooperation on the territory of a constituent entity of the Russian Federation is carried out by the commission for minors and the protection of their rights, created by the supreme executive body of state power of the constituent entity of the Russian Federation and operating in the territory of the constituent entity of the Russian Federation (hereinafter referred to as the commission of the constituent entity of the Russian Federation).

The organization and coordination of interagency interaction on the territory of a municipality (urban settlement, municipal district, urban district, urban district with intracity division, intracity district, intracity territories of cities of federal significance) is carried out by the territorial commission for minors and the protection of their rights, created by the supreme executive body of the state the authorities of the constituent entity of the Russian Federation, or the municipal commission for minors and the protection of their rights, created by the local government body (hereinafter referred to as the territorial [municipal] commission).

The subjects (participants) of interagency interaction are:

Commission on Minors' Affairs and Protection of Their Rights;

Management bodies for social protection of the population;

Bodies in charge of management in the field of education;

Guardianship and trusteeship bodies;

Youth affairs bodies;

Health authorities;

Employment Service Bodies;

Internal Affairs Bodies;

Institutions of the penitentiary system (pre-trial detention centers, educational colonies and penitentiary inspectorates).

Institutions created in these bodies that carry out certain functions for the prevention of neglect and juvenile delinquency, as well as ombudsmen for children's rights in the constituent entities of the Russian Federation, other bodies, institutions and organizations may participate in interdepartmental interaction within their competence in the manner prescribed by the legislation of the Russian Federation and (or) the legislation of the constituent entities of the Russian Federation, regulatory legal acts of local self-government bodies, as well as resolutions of the commissions of the constituent entities of the Russian Federation and (or) territorial (municipal) commissions.

The commissions of the constituent entities of the Russian Federation and territorial (municipal) commissions, when organizing and coordinating interdepartmental interaction, taking into account an individual approach to working with minors and families in a socially dangerous situation, are recommended to use the full potential of the subjects (participants) of interdepartmental interaction.

The chairpersons of the commissions of the constituent entities of the Russian Federation, the chairpersons of the territorial (municipal) commissions are personally responsible for organizing the work of the respective commissions to coordinate issues of interdepartmental interaction.

IV. Forms of interagency interaction

Interdepartmental interaction can be organized in the following forms.

1. Interdepartmental analysis and interdepartmental forecasting are used to collect information (information) necessary to identify problems in the organization of preventive work with families in a socially dangerous situation.

Interdepartmental analysis is aimed at joint analytical development of subjects (participants) of interdepartmental interaction, where on the basis of the results obtained, further forecasting of the effectiveness of preventive work with families in a socially dangerous situation can be built.

Combining information flows organized by various subjects (participants) of interdepartmental interaction allows one to foresee the emergence of new problems in the family, which is the object of interdepartmental interaction (for example, possible conflicts between a minor and his parents [other legal representatives]).

It seems necessary to analyze the totality of the data obtained by the body organizing and coordinating interdepartmental interaction (commission of a constituent entity of the Russian Federation, territorial [municipal] commission) from the point of view of forecasting scenarios, which predetermines the arrangement and tactics of using various professional forces.

2. Holding meetings of the commission of a constituent entity of the Russian Federation, territorial (municipal) commissions, as well as advisory bodies created by them (if any): working groups, councils, headquarters, councils and other bodies.

3. Joint development of guidelines, rules, procedures, regulations, mandatory for the subjects (participants) of interagency interaction in their joint work, the establishment of which prior to the start of joint work with families in a socially dangerous situation, affects the final result of interaction.

4. Coordination of documents required both for the organizational aspects of the implementation of interdepartmental interaction, and for the implementation of the joint professional activity itself.

5. Conducting joint integrated targeted activities, audits, projects, operations, etc.

This form can be of two types.

Firstly, it is a complex of measures designed for a long period of time with the consistent accumulation of information, professional experience in working with families in a socially dangerous situation, and the phased introduction of forces and means of various subjects (participants) of interagency interaction (implementation of interdepartmental programs of social rehabilitation of minors and families in socially dangerous situations).

Secondly, these are short-term, single joint actions of the subjects (participants) of interagency interaction (for example, a survey of the living conditions in which the family lives).

When implementing this form, the body that organizes and coordinates interdepartmental interaction (commission of a constituent entity of the Russian Federation, territorial [municipal] commission), in agreement with other subjects (participants) of interdepartmental interaction, can determine the circle of participants in the event with the professional skills necessary to perform the assigned tasks.

6. Development of a unified strategy for joint cooperation (for example, in the field of prevention of neglect and juvenile delinquency).

The results of joint strategy development can be implemented in proposals for the preparation of various organizational and tactical measures, complex operations, joint work plans, departmental acts (orders, decrees) or local decisions.

7. Working meetings of leaders or other representatives of subjects (participants) of interdepartmental interaction, which are organized to increase the efficiency of mutual information, response to a problem that has arisen (for example, combating neglect, homelessness and juvenile delinquency).

At such meetings, agreements are reached on the coordination of actions and the exchange of information, and plans for joint activities are prepared.

8. Information interdepartmental interaction, which is realized through information exchange between subjects (participants) of interdepartmental interaction, including using modern technologies (for example, the information and telecommunications network "Internet", local interdepartmental networks, databases and others).

This form allows you to conduct online consultations, webinars, conference calls, teleconferences.

When organizing interdepartmental interaction, various forms of interdepartmental interaction can be used simultaneously.

V. Information interdepartmental interaction

Information interagency interaction is carried out in accordance with paragraph 2 of Article 9 of the Federal Law of June 24, 1999 No. 120-FZ "On the foundations of the system for the prevention of neglect and juvenile delinquency."

It is recommended that the conditions for the exchange of information, requirements for its content and forms of presentation, including in electronic form, be fixed in the order (regulations) of interagency interaction, which may have the status of a regulatory legal act or be approved by a resolution of the commission of a constituent entity of the Russian Federation and (or) territorial (municipal) ) commission.

When developing requirements for the content, forms and conditions of information exchange, including in electronic form, it is advisable to provide for:

Creation (determination) of an operator of the interdepartmental interaction system, which will ensure its functioning in accordance with the legislation of the Russian Federation in the field of information, information technology and information protection;

The ability to use centralized databases and classifiers of information systems connected to the system of interdepartmental interaction. It is recommended to provide access of participants of interagency interaction to electronic services for the implementation of interagency interaction in order to obtain information, the content and volume of which is necessary in order to exercise the powers assigned to the subjects (participants) of interagency interaction;

Protection of transmitted documents and (or) information from unauthorized access, distortion or blocking from the moment these documents and (or) information are received in the system of interdepartmental interaction;

Storage of documents and (or) information contained in electronic services of information systems of subjects (participants) of interdepartmental interaction connected to the system of interdepartmental interaction and monitoring of the performance of electronic services;

Conditions for organizing interagency cooperation;

Form of submission of interdepartmental request and response to this request;

Responsibility for late submission of documents and (or) information within the framework of interagency cooperation.

Document overview

Methodological recommendations for improving the interdepartmental interaction of bodies and institutions of the system for the prevention of neglect and juvenile delinquency on the organization of preventive work with families in a socially dangerous situation are presented.

The forms of interaction, participants are indicated. Issues of information exchange are regulated.

The service of state registration of real estate, working to improve the quality of public services in its field, operates in a multi-vector manner. An electronic portal through which you can get some information, a specialist consultation by calling a hotline, an electronic queue, the opening of registration windows in multifunctional centers ...

One of the most difficult areas of the department's activities is interdepartmental interaction with other government agencies.

Interdepartmental interaction is the exchange of documents and information, including in electronic form, between authorities, bodies of state extra-budgetary funds in order to provide citizens and organizations with state and municipal services.

Why is this done? The main motive voiced: to significantly reduce the list of documents and all kinds of certificates required when registering a particular real estate transaction. Indeed, today it is no longer necessary for us to attach some pieces of paper - the specialists of the registering authority will independently request the document it needs from a related department.

The open exchange of information between Rosreestr and the Cadastral Chamber is especially important. At the moment, this process has not been perfected. The complexity is made up of unmatched and diverging (for various reasons) data on some real estate objects in the Unified State Register of Legal Entities and the State Property Committee. In the language of professionals, the coordination of such conflicting information is called harmonization. It is the data harmonization that will eliminate the numerous errors that arise in connection with the registration of real estate, transactions with it, the payment of taxes, etc.

You can find out about the peculiarities of interagency interaction at the present time by looking at any operating branch of the cadastral authority, for example, at the branch of the Federal State Budgetary Institution "FKP Rosreestr" in the Bryansk region.

Normative legal regulation of relations arising in connection with the provision of state and municipal services is carried out in accordance with the Federal Law of July 27, 2010 No. 210-FZ "On the organization of the provision of state and municipal services", Resolution of the Government of the Russian Federation of December 28, 2011 No. No. 1184 "On measures to ensure the transition of federal executive bodies and bodies of state extra-budgetary funds to interdepartmental information interaction in electronic form."

From July 1, 2012, the branch of the Federal State Budgetary Institution "FKP Rosreestr" in the Bryansk region switched to interdepartmental information interaction in the provision of public services with the executive bodies of state power of the constituent entities of the Russian Federation, local authorities, organizations subordinate to these authorities.

At present, this transition allows the provision of state and municipal services to citizens without requiring from them the information and documents held by other authorities and state organizations participating in interdepartmental information interaction.

When applying for services to the cadastral authority, the applicant has the right not to provide a number of documents necessary for the implementation of state cadastral registration of real estate, for example:

  • a document confirming the belonging of a land plot to a certain category of land - a decision to classify a land plot as a land of a certain category;
  • a document confirming the established permitted use of a land plot - a decision on establishing the type of permitted use of a land plot;
  • permission to enter a capital construction facility into operation;
  • other documents named in the Federal Law of July 24, 2007 No. 221-FZ "On the State Real Estate Cadastre".

The above documents will be requested by specialists without the participation of applicants within the framework of interdepartmental interaction.

But it is necessary to note an important point for understanding the mechanism: the cadastral authority requests approved materials, and does not order their registration in authorized bodies. And you can only request what is already there. If the document (for example, the assignment of a land plot to a certain category of land) has not previously been drawn up by the local government, the citizen will have to apply to the local government himself for such a document. In other words, within the framework of interdepartmental interaction, only those documents are provided that are available in the authorities and state organizations participating in the interaction.

The specialist of the branch of the Federal State Budgetary Institution "FKP Rosreestr" in the Bryansk region notes that the branch, within the framework of interdepartmental interaction, provides the state authorities and state extra-budgetary funds with the information contained in the state real estate cadastre free of charge, in the form of the following documents:

  • copies of the document on the basis of which information about the real estate object was entered into the state real estate cadastre;
  • cadastral extract of the property;
  • cadastral passport of the property;
  • cadastral plan of the territory;
  • cadastral certificate of the cadastral value of the land.

The main consumers of this service are the Federal Tax Service, Rosimushchestvo, Rosprirodnadzor, Rosselkhoznadzor, the Ministry of Internal Affairs, the Federal Bailiff Service, as well as local government bodies of the Bryansk region (the procedure for providing the above information was approved by Order of the Ministry of Economic Development of the Russian Federation dated February 27, 2010 No. providing information entered in the state real estate cadastre ").

It should be noted that the direction of interdepartmental inquiries is allowed only for purposes related to the provision of public services, and officials who sent unfounded interdepartmental inquiries are liable in accordance with the legislation of the Russian Federation (Article 7.1. Federal Law No. 210-FZ).

The main task facing the cadastral chamber is to improve the quality and availability of state services of Rosreestr, including the provision of services in electronic form. To achieve these goals in full, government bodies and local governments need to ensure the effective use of information and telecommunication technologies.

In this regard, the specialists of the cadastral authority strongly recommend that the bodies and organizations participating in interagency cooperation submit requests to the cadastral registration authority in electronic form through the Rosreestr service portal (

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1 Effective forms and methods of organizing interagency interaction in work with minors in a socially dangerous situation Natalya Ivanovna Krivenkova, State Educational Institution "Kostyukovichsky District Social and Pedagogical Center", social teacher. Tel. 8 (02245) May it never be bad for them, May the hope for the best live. Adults! Well, perform a miracle, Let there be no orphans in the land. V. Makut 'The family in modern conditions does not always independently find a way out of difficult life situations, which leads to an increase in the number of dysfunctional families. Family dysfunction finds expression in conflict relationships between parents, between children and parents, and antisocial behavior. A dysfunctional family needs outside help. A child from a family of any type can become an object of state protection and support. However, the degree of need for social and pedagogical protection and support for different categories of children will be different. Juveniles in socially vulnerable situations (SOPs) are especially vulnerable. As experience shows, not a single separate service is able to independently take a family out of a socially dangerous situation; this is possible only by combining efforts within the framework of interdepartmental interaction and providing comprehensive assistance to families. Interdepartmental interaction is currently one of the important forms of work of subjects of prevention, which allows joint efforts to solve common problems of protecting the rights of children, preventing neglect and juvenile delinquency, as well as preventing the socially dangerous situation of families. One of the main goals of prevention professionals is to use the information available to help all stakeholders in the interaction create a working social system by agreeing on mutual responsibilities and priorities. The main task of the specialists of the State Educational Institution "Kostyukovichsky District Social and Pedagogical Center", as well as other interested services, is the timely coordination of actions aimed at

2 assisting the family in finding a way out of a difficult life situation in accordance with the legislation of the Republic of Belarus. In order to prevent social orphanhood, much attention is paid to early detection of family problems. The first, and very important, stage of interagency cooperation begins with preventive work. The implementation of Decree 18 is systematically considered at meetings of the district and village executive committees, meetings of the commissions for juvenile affairs of the district executive committee, common days of informing the population, various kinds of seminars and meetings. In order to strengthen departmental control over the activities of organizations authorized by the state to protect the rights and legitimate interests of children in a socially dangerous situation, there is a coordination council for monitoring the implementation of Decree 18. commission visits, both in the town of Kostyukovichi and in the Kostyukovichi district. The raids are attended by specialists and employees of educational institutions of the region, the Kostyukovichskaya Central Regional Hospital, the ROVD, the juvenile affairs inspectorate, the juvenile affairs commission, the labor, employment, social protection department, rural executive committees, the Regional Emergency Service, representatives of public organizations. In 2013, 289 commission visits were carried out, SOC specialists participated in 12 interdepartmental raids "Family" and raids "Family without violence", 542 families with 859 children were visited at home. Since 2011, interdepartmental work has been strengthened to eliminate the socially dangerous situation of minors. One of the most effective forms of work is the implementation of the protocols of instructions following the results of raids on families whose children are in a socially dangerous situation (decision of the Regional Coordinating Council of September 7, 2011). During the period of 2013, 6 protocols of instructions to the interested services were drawn up. According to the protocols of instructions: assistance was offered in employment to 6 citizens, three parents were examined by a narcologist, one minor was sent to the sanatorium school "Zhivitsa" in Gomel (for 2 shifts), As a result of the work carried out, two citizens were encoded. Assistance was rendered to a large family who arrived from another region in the repair of living quarters. When eliminating

3 family troubles, various types of family assistance are used: psychological and pedagogical support, legal advice, medical assistance, etc. A number of measures have been taken for the extracurricular employment of children, including during vacations. It also analyzes messages from the department of education, sports and tourism, police department, housing and communal services, central district hospital, court, ROChS, etc., about possible social problems in families with dependent minor children. For the period of 2013, specialists of the State Educational Institution "Kostyukovichsky District Social Pedagogical Center", together with specialists from educational institutions of the district and other services, carried out checks of signals about family problems received from interested organizations. A total of 299 messages were received (which is 63 more than in 2012) about the revealed facts of trouble in families with 579 dependent children. Of these: - 125 messages from the ROVD; -from the UKPP "Zhilkommunkhoz" - 80 messages; -from the Department of Education, Sports and Tourism - 8 messages; -from the UZ "Kostyukovichskaya CRH" - 24 messages; -38 messages from the court; -from ROChS - 5 messages; - from CDN - 7 messages; -from RUE “Mogilevenergo” - 2 messages; - from RUE "Mogilevoblgaz" - 1 message; - from UKP "Vodokanal" - 9 messages. For each message received, the teachers conducted a social investigation in order to determine whether minors are in a socially dangerous situation, whether there are signs indicating that there is a threat to the life and health of minors. Conclusions and motivated conclusions are made, indicating appropriate assistance to children. Based on the results of consideration of communications, 58 minors from 23 families were recognized as being in a socially dangerous situation, in 2012 - 15 minors from 9 families. The second stage of interdepartmental interaction includes escorting minors in a socially dangerous situation. In order to implement the requirements of Decree 18 of the President of the Republic of Belarus of the year "On additional measures for state protection of children in disadvantaged families" in the State Educational Institution "Kostyukovichsky District Social and Pedagogical Center", a regional databank of minors in a socially dangerous situation is being maintained. The databank is updated as it becomes available

4 information is kept up-to-date and the information is sent monthly to all interested institutions and departments responsible for the implementation of Decree 18. Every month educational institutions provide information to the State Educational Institution "Kostyukovichi District Social and Pedagogical Center" on the registration of minors recognized as being in a socially dangerous situation, reporting information on the difficulties and effectiveness of work in the implementation of individual plans for the protection of the rights and legitimate interests of minors. Also, the Program for the upbringing and protection of the rights and legal interests of children in a socially dangerous situation, the Program for the Rehabilitation of the Family and the Child, and the Teenager Program are being implemented. Problems in dysfunctional families are similar, but each family remains unique and different from others. Understanding of this fact forces a lot of attention to be paid to the development and implementation of individual plans to protect the rights and legitimate interests of minors in a socially dangerous situation. To this end, the SOC specialists coordinate a full social investigation for each dysfunctional family, so that the types of assistance available must correspond to the existing family problems, all possible problems and ways of solving them are taken into account in order to gradually get out of the current unfavorable situation. The work of specialists from educational institutions, a social pedagogical center with parents, whose children are recognized as being in a socially dangerous situation, is aimed at eliminating the causes of family problems. In 2013, specialists from the social and pedagogical center on anti-alcohol topics conducted 452 individual consultations for parents, 10 group consultations for 208 parents. In work with the family, both new and old forms of work were used: attracting clergy, organizing the work of clubs for parents "Family", not only in schools, but also in preschool institutions, clubs of fathers. Specialists of the State Educational Institution "Kostyukovichsky District Social and Pedagogical Center" developed a series of conversations (5 sessions) for parents who were brought to administrative responsibility for the first time and who have minor children as their dependent, but were not registered as a result of a social investigation. At this stage, requests are sent to institutions and departments for a detailed study of the state of affairs in the family. Requests can be sent to health care institutions, departments of internal affairs (inspectorate for minors), the department of labor, employment and social protection of the district executive committee, UCPP Zhilkommunkhoz, rural executive committees, registry office,

5 enterprises and organizations where parents of minors work, other organizations, departments and services. As a result of the work carried out, 22 parents were treated for alcohol addiction, 23 parents were employed. 10 minors who were recognized as being in a socially dangerous situation were registered in preschool institutions. Paternity was established voluntarily by three parents for four children. Material support is provided to the families of the SOP: state targeted social assistance has been assigned to 20 families in the amount of 76,152.11 thousand rubles, free baby food is received by 5 families in the amount of 20,534.59 thousand rubles. In order to provide material assistance to families in need, various actions are held annually in all educational institutions. In 2013, educational institutions held such campaigns as "Warm House", "Hello, School", "Care", "Christmas Present for a Friend", "Miracles for Christmas", "Easter Gift", the charitable marathon "Step to the Meeting", " Warmth of children's hearts ”and others. All children in a socially dangerous situation received gifts from the Samorityansky Purse charitable foundation, 9 children from the children's charity fund as part of the Let's Warm Children's Hearts marathon, 10 children from the Children's Peace Fund. Clothes, shoes, toys, school supplies, bicycles were handed over to children. Every year, by the beginning of the school year, all educational institutions hold the “Get the child to school” campaign to provide material support to disadvantaged and low-income families. By the efforts of educational institutions in the households of the SOP families, the repair of the furnace heating and the repair of the electrical wiring were carried out. Employees of the department of education, sports and tourism of the district executive committee, together with the ROChS, in 2013 in 27 households of SOP families installed an API with a light and sound device on the facade, at the beginning of 2014 5. In order to carry out preventive work, interaction with the commissions for promoting the family and school is being carried out at enterprises, where the parents work. The preparation of materials forwarded to the commission on juvenile affairs of the Kostyukovichi regional executive committee is underway. In total, during the period of 2013, 59 petitions were sent to take action against parents for improper performance of parental responsibilities. At the third stage of interdepartmental interaction, the final control of the effectiveness of rehabilitation work with disadvantaged families is carried out, the coordinator of which is the social and pedagogical center. The center's specialists summarize and analyze social and pedagogical information about the situation in families, where

6 minors are recognized in a socially dangerous situation, after rehabilitation measures, they identify shortcomings, draw conclusions and conclusions, based on the results of which a final decision is made: either on deregistration, or on the correction and revision of individual protection plans to intensify work with families and minors on withdrawal from a socially dangerous position. Of course, family trouble as a problem in the Kostyukovichi district remains relevant, but it should be noted that there is also a positive dynamics of work. In 2013, 96 minors from 54 families were registered as being in a socially dangerous situation, 65 children from 33 families were removed from the register. In 2012, 46 minors from 27 families were registered, 61 children from 35 families were removed from the register. 5 children from 3 families were recognized as needing state protection, which is 2 times less than in 2012. There were no deprivations of parental rights. At the same time, problematic issues remain: the employment of parents (according to the data bank, 26 parents do not work), 25 parents continue to abuse alcohol. With regard to employment, all educational institutions have sent applications to the Department of Labor, Employment and Social Protection for assistance in employment for all parents who abuse alcohol, petitions have been sent to the Kostyukovichi Central District Hospital for preventive work with these parents by a narcologist. Unfortunately, working with minors in a socially dangerous situation and their parents does not always lead to positive results. But we are glad that in some families, as a result of purposeful, joint, systematic and painstaking work, peace and mutual understanding still reign, and children feel the warmth, care of relatives and friends.


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(local) regulations developed by the institution in the course of its activities. 2. Organizational structure 2.1. The structure of the department includes: Social emergency response service "Child

An institution in relation to the student and families in a socially dangerous situation, which is aimed at: preventing neglect, delinquency and other negative manifestations among students;

Introduction

Chapter 1. Interdepartmental interaction in the social sphere: concept, management practice 16-77

1.1. The concept of "interagency interaction in the social sphere" 16 - 49

1.2. Interdepartmental barriers in solving the problems of orphanhood in the area 50-77

Chapter 2. Organization of interdepartmental interaction of social institutions on the territory 78-138

2.1. Principles and mechanisms of interdepartmental interaction of institutions in the social sphere 78-113

2.2. Overcoming interdepartmental barriers in solving the problems of street children and social orphans 114-138

Conclusion 139-140

Literature 141 - 159

Appendices 160 - 173

Introduction to work

The relevance of the dissertation research.

Neglect of children and social orphanhood are indicators of the crisis state of modern Russian society. According to official government data, the number of street children in Russia at the beginning of 2004 was about one million. Many researchers believe that the real number of homeless people is several times higher. Official statistics are unable to reflect the real picture of the phenomenon under study, since it takes into account only children registered in specialized institutions.

To date, not a single structure of the system for the prevention of child neglect has accurate information. O families and children in a socially dangerous situation. The available data vary significantly by agency. So, as of 01.01.2003, 7,797 families were registered with the commissions for minors and the protection of their rights of the Kemerovo region, which did not provide adequate conditions for the upbringing, maintenance and education of 9,949 children. According to the education departments of the Regional Administration, the number of such families is 8890, children - 14972, social protection of the population, respectively, 9419 and 18525 people 1.

According to the Kemerovo City Administration, in 2002 2,893 orphans and children left without parental care were brought up and trained in the city. 1,665 minors are under guardianship, 103 children have been adopted. As of 01.01.2003 graduates of residential institutions

1 Submission of the Prosecutor's Office of the Kemerovo Region dated 04.16.03. No. 21-3-03 "On elimination of violations of the requirements of the legislation on the responsibility of parents for the upbringing of children in the activities of commissions for minors and the protection of their rights, educational authorities."

of the number of orphans under the age of 23 - 308 people 2.

As a result of the instability of socio-economic and political life, children increasingly find themselves in a difficult life situation, from which it is impossible for them to find a way out on their own. Objectively, the need for state and public protection of minors is maturing. The solution to childhood problems depends on the efforts of the family and on the activities of social institutions involved in the process of socialization of children.

The scale of the factors stimulating neglect and social orphanhood shows that only state services can resist the destruction of the family's material well-being, mass unemployment, poverty, and crime. This is the only institution capable of integrating the efforts of all subjects of management in the social field.

Institutions of various departments of the social sphere are called upon to represent and defend the cultural, educational, medical, spiritual and other interests of children. "The social sphere is ideally designed to ensure a sufficient level of well-being, from the point of view of the progress of social development, and the availability of basic life benefits for the majority of the population."

Each department, within its competence, is responsible for solving certain problems of minors, for creating conditions for the implementation of their interests at various stages of the life of an orphan.

The positioning of orphans' interests by social institutions often does not correspond to the focus and range of children's needs.

Lack of coordination of efforts manifests itself in the course of work to identify a child in disadvantaged conditions. Belatedly, the facts of malicious evasion of parents from fulfilling their duties in relation to children are becoming known. It is not immediately decided about

2 There should not be someone else's children (from experience in the prevention of neglect and
juvenile offenses in the city of Kemerovo). Kemerovo, 2003. - Issue. 3.- Sat.

3 Osadchaya G.I. Sociology of the social sphere: Textbook. manual. - M: Publishing house MGSU "Soyuz",
1999.- S. 28.

initiation of proceedings on deprivation of parental rights. According to child psychologists, the main character traits are formed in a child under six to seven years of age. As a result, social orphans fall under the care of the state somatically, pedagogically and intellectually neglected, with severe mental trauma, having a negative experience of life in the family behind them.

Today, interdepartmental interaction, supported by a legislative and material base, is relevant. It is necessary to provide social support to graduates of boarding schools. When leaving the walls of the boarding school, orphanage, graduates often find themselves thrown into life without the social experience necessary for an independent life. Without the support of relatives and friends, without a good education, they, as a rule, cannot get a job. Due to the lack of funds in local budgets, they are not given housing, social benefits are only declared.

Since the mid-90s, a network of institutions and organizations for social protection of the population has become widespread, providing various types of assistance and support to children in difficult life situations. Currently, there are more than 130 institutions operating in the Kemerovo region. Territorial specialized institutions provide such children with an opportunity for temporary residence, carry out social rehabilitation of minors, provide legal, medical, psychological, economic, and pedagogical assistance.

The current situation predetermines the scale and direction of the work of these institutions, makes it necessary to constantly increase the volume of social assistance, to find new, more effective work technologies. Along with the traditional forms of work with social orphans, the activities of shelters for minors, centers for social assistance to families and children, social rehabilitation centers, etc. are actively being introduced (See Appendix 1). These structures provide social

support to those in need, being in close proximity to the family, child. Social protection institutions are also in contact with the state authorities, on which the solution of the client's problems depends. Such a system allows you to assess the real life situation and find specific ways out at the management level. The increase in the number and diversity of social welfare institutions is intended to ensure a variety of social services and their availability to the population. This testifies in favor of the widespread creation of social protection institutions, whose specialists are intermediaries and contactees with all structures of the social sphere. Social protection of the population was created as an independent system of institutions. In this sense, intradepartmental interaction is primary, and interdepartmental interaction is secondary. The logic of the functioning of social protection institutions transforms the secondary nature of interdepartmental interaction into primaryness.

Solving the problems of neglect and orphanhood of children is hampered by the fragmentation of actions of social institutions in the territory. Existing technologies for working with minors regulate the actions of departments when providing social assistance to a child in a socially dangerous situation: law enforcement agencies - when a teenager commits a crime, hooliganism, or if the child is seen in vagrancy; social protection - when working with a dysfunctional family and, if necessary, temporary placement of a child for the purpose of social rehabilitation; education - when placed in children's boarding schools, etc. The fate of the child is passed from hand to hand, goes through the stages of technology. If the department has fulfilled its task, then the child is removed from the register and either transferred to another structure (without further control over him), or is released from the field of vision altogether, and work with him is not carried out. Each department, when working, uses its own criteria, reporting indicators, contributions

gives its meaning to concepts. All services do not have a single operational field and a single task. There is no reliance in the work on information from other structures in the required volume. Irrational duplication of functions complicates the work.

So, the development of the social service system is contradictory, sometimes not consistent with the surrounding social reality. The existing network of social institutions for minors does not correspond to the severity and scale of disintegration of children, and the system of social policy measures is inadequate to the needs of a modern family.

Specialized institutions are not able to solve the problems of street children and social orphans at a socially acceptable level due to the weak interagency interaction of various structures of the social sphere in the territory. The network of state institutions working with children is represented by various departments: education, health care, social protection, law enforcement agencies, housing and communal services, and culture. State authorities and local self-government bodies deal with issues of neglect and social orphanhood. Public organizations and foundations are also focused on the protection of children. At the same time, none of the departments performs a coordinating function. Consequently, these structures cannot be considered as a single complex on the territory.

So, the relevance of the dissertation research is due to the needs of social practice, the severity of problems associated with child restlessness, homelessness, orphanhood and the threatening increase in the facts of deviant behavior of children and adolescents. Another challenge to social practice is the prevention of violence against children, as well as the need for social rehabilitation in cases of crippled childhood. The relevance of the topic of research by social practice is also confirmed by the fact that social protection institutions that directly work with the population and

The territorial and administrative aspect of the interaction of social institutions is becoming relevant today, since society has the opportunity to combine the efforts of state, municipal authorities and institutions, organizations of the non-profit "3rd sector" to implement practical measures to mitigate the severity of the problem of orphanhood, especially in relation to social orphans. disadvantaged with living parents and the parents themselves. The development of recommendations, mechanisms for interaction of institutions of the social sphere makes it possible to more fully use the reserves of this sphere and save resources, to achieve overcoming interdepartmental barriers in the interests of the well-being of children and the entire population.

The stated topic of the dissertation research is scientifically relevant, since today there are few works in the sociology of management that reveal the problems of interdepartmental interaction of institutions in the social sphere.

Development of the topic in the scientific literature.

The concept of "interaction" is used by researchers to explain a wide range of phenomena of social reality. A significant contribution to the study of this topic was made by such foreign scientists as M. Weber, T. Parsons, G. Simmel, E. Giddens and others. In Russian sociology, general problems of interaction were considered by B.N. Chicherin, M.M. Kovalevsky, P.A. Sorokin, K.M. Takhtarev and others. Among modern scientists one can name V.V. Zheltova, O.S. Razumovsky, E.V. Rudensky, M.V. Udaltsov, V.P. Fofanova, L.L. Shpak, etc.

In the scientific literature, such forms of interaction are considered as socio-political (L.L. Shpak, V.V. Zheltov, etc.), informational (V.Z.Kogan, V.N.Shubkin, etc.), socio-economic (T.I. Zaslav-

ekaya, F.M. Borodkin and others), intergroup (B.C. Ageev and others), social partnership (I.M. Model, B.S.Model, G.Yu. Semigin, A.I. Sukharev and others).

General issues of social management are reflected in the publications of Yu.P. Averina, V.G. Afanasyeva, A.I. Prigogine, A.M. Omarova, T.M. Dridze, N.S. Danakina, E.V. Okhotskiy, B.C. Komarovsky, N.M. Slepenkova, V.I. Dobrenkova and others.

Social policy in general and as a variety of regional policy is covered in the works of SV. Biryukova, N. D. Vavilina, L.G. Guslyakova, V.V. Zheltova, L.L. Shpak, F.E. Burdzhalova, G.I. Osadchy and others.

General problems of the social sphere are highlighted in the works of authors such as B.C. Barulin, V.N. Ivanov, V.N. Kovalev, Yu.E. Volkov, G.I. Tea-siege, SI. Grigoriev, L.G. Guslyakova, A.I. Lyashenko, A.M. Babich, E.N. Zhiltsov, E.V. Egorov, O. N. Viktorov, V.L. Kurakov, N.V. Bondarenko, E.N. Gri-bakin, etc.

Aspects of management of social institutions are reflected in the works of N.D. Vavilina, A.I. Lyashenko, M.V. Udaltsova, E.I. Kholostova, L.V. Topchego, V.G. Popova, SA. Belicheva and others.

A narrow circle of authors (D.A. Kugan, E.V. Khizhnyakova, A.V. Gurevich, etc.) is engaged in related problems of inter-territorial and intra-territorial interaction of institutions of the social sphere.

The principles of the structure and functioning of organizations, technologies of organizational interaction were studied by NS Danakin, B.C. Dudchenko A.I. Prigozhiy, V.V. Shcherbina, A.V. Strygin and others.

Socio-economic, demographic, psychological

pedagogical and other problems of the family are described in the works of the employees of the Research Institute of the Family: A.G. Kharcheva, M.S. Matskovsky, SI. Hunger, SV. Darmodekhina, O. I. Volgina and others.

The social problems of orphanhood are reflected in the works of researchers from the Research Institute of Childhood of the Russian Children's Fund and the Institute of Sociology of the Russian Academy of Sciences

(I.V. Anisimova, V.V.Belyakova, I.F.Dementyeva, I.G. Zhiritskaya, N.P. Ivanova, A.M. Nechaeva and others). The reasons for social orphanhood are considered in the works of V.V. Belyakov, V. Brutman, L. I. Kononova and others. State social policy in the interests of children is studied by Ye.M. Rybinsky, L.V. Kuznetsova, M.I. Nesmeyanova and others. Problems of violence against children in the family were considered in the works of LS. Alekseeva, V.M. Zakirova, A.D. Kosheleva, M.R. Rokitsky and others.

By the joint efforts of researchers in the development of this topic, the following has been achieved:

Conceptual foundations for the study of social interaction in the territory have been formed;

The concept of the social sphere is revealed;

The specifics of social protection institutions and the technology of work of these institutions with various categories of clients, including children and families in difficult life circumstances, have been determined;

Described social problems and reasons for orphanhood.

Despite the results achieved, the principles and mechanisms of interdepartmental interaction necessary for a comprehensive solution to the problems of orphanhood in the territory remained poorly covered. Insufficient attention was paid to the development of problems of interaction in the territorial and administrative aspect, including taking into account the positioning of the interests of orphans and the presence of interdepartmental barriers.

Research problem- weak use of territorial-administrative mechanisms in the interaction of social institutions for a comprehensive solution to the problems of orphanhood.

Object of study- interaction of social institutions on the territory.

Subject of study- organization of interdepartmental interaction in solving the problems of orphanhood.

The purpose of the thesis- optimization of territorial and administrative mechanisms of interdepartmental interaction of institutions of the social sphere in solving the problems of orphanhood.

Tasks, realizing the purpose of the study:

to reveal the concept of "interagency interaction in the social sphere";

to give a typology of interdepartmental barriers in the aspect of positioning the interests of orphans and the possibilities of social institutions;

to characterize the principles and mechanisms of interaction of institutions of social protection with other institutions of the social sphere;

to study the possibilities of a comprehensive solution to the problems of orphanhood on the way of overcoming interdepartmental barriers in the social sphere.

Research hypotheses.

Hypothesis-basis: interaction of social institutions is a necessary condition for a comprehensive solution to the problems of orphanhood of children and adolescents in the territory; studying the problem of interaction in the territorial-administrative aspect allows to optimize the processes of interaction in the interests of orphans.

Consequence hypotheses:

Compliance with the principles of interaction allows you to develop a common, conceptually built management approach to a comprehensive solution to the problems of orphanhood in the territory;

Technological support of interaction processes contributes to the concentration of resources and efforts of the interacting parties in solving the key problems of orphanhood of children and adolescents in the territory;

Overcoming interdepartmental barriers leads to the unification of interaction processes and at the same time introduces a sufficient variety of forms, methods and means of achieving common goals by the interacting parties;

> Organization of interaction between social institutions depends on the competence of management personnel and territorial and administrative capabilities of the interacting parties.

Theoretical and methodological fundamentals research for the author has become a systematic approach and a method of systems analysis. The structural-functional approach was used to study the object and subject area of ​​the dissertation research.

The closest to the study of the processes, mechanisms and consequences of interagency interaction in the social sphere are interpretive paradigms (the paradigm of social action, adaptive), as well as the functionalist paradigm.

The basis of the dissertation research was the concept of scientific and social management developed in Russian sociology, as well as the concept of social interaction.

The ideas and concepts of modern authors working on the problems of organizations, technologies of intra-organizational and inter-organizational interaction (N.S. Danakin, V.S. Dudchenko, A.I. Prigozhiy, A.V. Strygin, V.V. Shcherbina, etc. .).

Research methods: structural and functional analysis, expert survey, questionnaire survey, participant observation, traditional document analysis, secondary analysis.

Empirical base of research. Information equipment.

V the empirical base of the research included applied research conducted personally by the candidate for a degree and with her participation in 1998-2004.

1998 to 1999 on the basis of an orphanage-school with. Berezovo of the Kemerovo region (departmental subordination - to the Education Department of the Kemerovo region), a study of social problems, the fate of orphans,

difficulties in the functioning of boarding schools, technologies for working with minors, interdepartmental relations of institutions in the organization, living and leaving the walls of the orphanage. As part of this study, interviews were conducted between employees and inmates of the Berezovsky orphanage-school (54 adolescents under 18), materials of the institution's work, accounting and reporting documentation for 1997-1999 were studied.

The study of the system of working with children who lost parental care was also carried out on the basis of the Social Protection Department of the Kemerovo District Administration, where the candidate was familiarized with the current and annual accounting and reporting documentation of this structure (1998-1999).

In the dissertation work, materials of included observation were used during the period of work at the Center for Social Assistance to Families and Children in Kemerovo (2002-2004). In order to study the territorial and administrative mechanisms of interdepartmental interaction of institutions of the social sphere on the basis of the Center, the following applied research was carried out:

> Participation in the work of the "Family" councils of the Kemerovo microdistricts (2003-2004);

Have Survey of members of the "Family" councils of micro-districts of the city of Kemerovo (2004, 100 people).

The dissertation uses materials from the current archive of the Center for Social Assistance to Families and Children, as well as documents from the Coordination Council "Family" and "Council for Prevention, Neglect and Juvenile Delinquency" in Kemerovo (for 2002-04).

In 2004. the candidate for the dissertation conducted an expert survey of 30 leading employees of social institutions in the city of Kemerovo (from among the participants in solving the problems of orphanhood and neglect of children on the territory).

The method of secondary analysis was used to study research materials of the international project “Stra-

partnership tag: local development "(1999-2002, project leaders, Doctor of Philosophy, Prof. V.V. Zheltov, Doctor of Social Sciences, Prof. L.L. Shpak), materials of research carried out in the city of Berezovsky (Center for Social Assistance to Families and Children, Director - Candidate of Social Sciences NB Goryunova).

In addition, we studied the information available about the British project on social protection of the population in Kuzbass, materials of a sociological study conducted at the Center for Social Assistance to Families and Children in Kemerovo "Social services: meeting the needs of the population" (director - Chernyaeva I.A., scientific head - L.L.Shpak, performers T.Yu. Mochalova, M.N.Bolshakova, E.V. Polichuk, N.B.Sinitskaya; 2002-2003, survey of 600 people).

Scientific novelty of the research:

The concept of "interagency interaction in the social sphere" has been clarified;

A classification of interdepartmental barriers in the interaction of social institutions is given in relation to solving the problems of orphanhood of children and adolescents (legal, organizational and managerial, innovative, social, psychological, cultural, communicative, religious, ethnic, gender, political, geographical and other barriers);

In the territorial-administrative aspect, a technological process of interaction between social institutions is proposed on the basis of positioning the interests of orphans and social institutions;

The principles and mechanisms of interaction of institutions of the social sphere in the complex solution of the problems of orphanhood in the territory are systematized.

The theoretical significance of the study.

V of the thesis, conceptual provisions were developed that characterize the social sphere in the territorial-administrative aspect in relation to the problems of orphanhood. A conceptual scheme of technical

nological support of the processes of interaction between institutions, taking into account interdepartmental barriers and positioning the interests of orphans. Dissertation provisions can be used as starting points for further study of territorial and administrative problems of the social sphere.

The practical significance of the study.

The main results of the dissertation research can be used in the activities of state and local authorities, institutions of the social sphere in the organization and conduct of interdepartmental work to solve the problems of neglect and orphanhood.

The research materials can be used in university teaching of courses in sociology of management and sociology of the social sphere, in various forms of training and retraining of cadres of sociologists, political scientists, social workers, state and municipal employees.

The concept of "interagency interaction in the social sphere"

We consider interdepartmental interaction in the dissertation as a kind of social interaction. The parties to the interaction are socially oriented entities (subordinate organizations, institutions on the territory) that achieve their goals through certain professionally specialized measures and actions.

The concept of "interaction" has attracted the attention of researchers in various fields of scientific knowledge.

Attention to action and interaction was manifested in the works of Plato, Aristotle, Spinoza, Hobbes, Kant, and other thinkers. They considered interaction with the aim of studying and explaining causality, development, unity-diversity of existence, etc. For example, Plato, in the doctrine of an ideal state, considered the interconnection and interdependence of the phenomena of the world and believed that people are constantly in need and unite for the purpose of mutual assistance. Hegel and Schopenhauer identified action and being 4.

Interaction is considered by many modern scientists (L.S.Vygotsky, E.V. Ilyenkov, and others) from an ontological and evolutionary standpoint. It leads to self-change, self-development of a person throughout life (ontogeny) and, as a result, to the improvement of society (social evolution) 5. Social interaction is also studied in an anthropological way as "a condition for the species preservation of a person and his continuous expansion in being."

The problem of social action and interaction was developed by many representatives of sociological thought of various schools and trends: the theory of conflicts (R. Dahrendorf, L. Coser, and others); sociological theories of international relations (W. Blanche, M. Shaw and others); the theory of social exchange (D. Homans, P. Blau and others); symbolic interactionism (G. Mead, G. Bloomer, D. Moreno and others); phenomenological sociology and ethnomethodology (A. Schütz, P. Berger, G. Garfinkel, T. Luckmann, etc.), the concept of managing impressions (E. Hoffman, etc.), etc.

The adherents of the concept of exchange understood social interaction as a constant exchange of values ​​(tangible and intangible). Exchange actions occur according to the "stimulus-response" scheme. From the point of view of symbolic interactionism, social interaction is a dialogue between individuals who have a "personal self". It is realized on two levels - interpersonal and intrapersonal. The surrounding world and the situation are important for interacting subjects. They form meanings and try to symbolize other people's actions. There is no direct influence on each other, but mediated by the use of symbols. External interactions affect the formation of internal self-reflection, which determines the structure of the personality.

Max Weber (1864 - 1920) was the first to introduce into sociology and scientifically substantiate the concept of "social action". He believed that sociology "is a science that seeks, interpreting, to understand social action and thereby causally explain its process and impact." An action is social, if it is subjective, that is, personally meaningful (motivated) and focused on the response of others. The interaction is purposeful, purposeful and manageable. The social actions of an individual or a group of individuals are a central category in theory. P.P. Gaidenko, in the preface to the publication of Weber's works, writes that "the category of social action, as the initial" cell "of social life, does not make it possible to understand the results of the social process, which quite often do not coincide with the direction of individual action."

The American sociologist Talcott Parsons (1902 - 1979), developing the theory of action 10, based on the fact that individuals are endowed with the desire to act. In the process of interaction, they are organized and combined. Individuals have expectations about each other's actions, which determine social rules (norms) and generally accepted values ​​that help ensure the nature of responses. From the point of view of Parsons, people are connected by common symbols assimilated on a conscious and unconscious level, which are elements of cultural traditions. He considered the "single act" as the basic unit of the theory. This is the limit of the fragmentation of action. Acts do not exist separately, but are always associated with other acts. In his work "Social System" (1951), he introduces the concept of "unit of action" as a unit of analysis. In the single action model, there is only one actor. Then Parsons began to view the social system as based on interaction and introduced the status-role concept. Within the framework of this concept, social interaction was studied by the author as a system of standardized relations of figures who have a certain status and perform mutually expected roles relative to each other. This system is taking shape as a social structure that is normatively fixed and regulated by cultural patterns, which performs the function of integrating society. The action system is made up of an "organized set of action orientations." Action orientation is "a specific combination of choices related to objects and built on the basis of the choices available in a particular situation." The main elements of the Parsons action system are the doer (actor), the goals of the activity, the situation, the means of achieving the goal, the conditions of action, regulatory regulators, motives, the action as such, the result. Parsons viewed the social system as self-organizing, reproducing balance and equilibrium between all subsystems due to their functional expediency. Parsons' student Robert Merton studied the functional connections and interactions of the systems of the social structure of society, their influence on the activities and behavior of people in society. P. Sorokin, G. Simmel proved the need to study social interaction not only between individuals, but also between complex social formations.

Interdepartmental barriers in solving the problems of orphanhood in the territory

In the process of interagency interaction, a number of difficulties, obstacles, barriers to solving social problems are encountered.

A barrier is usually understood as some kind of obstacle, obstacle, difficulty in moving or doing something. In the literature, they write about a barrier as an obstacle to the success of something, an obstacle to action and the development of activity.

In interdepartmental interaction, barriers are circumstances (of a subjective and objective nature) that make it difficult for the participants in the interaction to achieve the goal. They complicate work, hinder coordination of actions, joint decision-making and the provision of social assistance to those in need.

Interdepartmental barriers in the interaction of social institutions in relation to solving the problems of street children and social orphans can be classified into legal, organizational and managerial, social, psychological, cultural, communicative, religious, ethnic, gender, political, geographic, and economic.

The main management barriers complicating the interdepartmental interaction of institutions in solving the problems of neglected children and social orphans are 42: • the complexity of the management object;

Information lag, typical for complex systems; Have the orientation of the subject making management decisions. The leader is simultaneously included in various social systems: job, group, socio-political, family, etc. Each system determines his role, rights and responsibilities. These roles may not coincide, provoking a conflict, contradiction, barrier.

The issue of strengthening interdepartmental work is relevant at all levels of social management. However, barriers to interaction between institutions on the territory may be absent, not so acute at the level of ministries and, accordingly, not taken into account or inadequately perceived when building interdepartmental interaction, creating a regulatory framework.

Considering organizational interaction in the theory and practice of social management, A.V. Strygin believes that the stability of this interaction is achieved with consistency in order for the functioning of various organizations within the framework of a single environment for them. These goals should be aligned with the goals of the environment itself. A sufficient level of resource provision is also a condition for stability. Violation of one of the conditions leads to the emergence of barriers, organizational gaps. The main reason causing the processes of a destabilizing nature is the lack of an effective mechanism for organizational support for decisions made at various levels, the consistency of these decisions and the orderliness of organizational interactions. He concludes that organizational interaction is a means of achieving a higher level of organizational effectiveness 43.

The emergence of interdepartmental barriers is associated with organizational and managerial contradiction, the essence of which is that the objective need for various kinds of interactions is associated with high organizational differentiation, the desire for departmental autonomy and closed management.

One of the main reasons that give rise to contradictions in joint work is the lack of a coherent, logical, adequately reflecting the reality of the concept of the development of the social sphere. This circumstance manifests itself at all levels of management. On the territory, a general scheme of actions of institutions of various departments with a certain category can be developed. But there is no single concept, within which all participants are considered as a single whole, the problems of interaction have not been identified and solved, the principles of joint work have not been developed and introduced into everyday practice. In the absence of a clear understanding of the content and specifics of the interdepartmental model at the federal and regional levels, it is difficult to jointly solve the problems of a specific territory and institutions located on it.

Without a single concept of joint action, each institution independently builds interdepartmental work on principles convenient for each individual case. An effective solution to the problems of street children and social orphans is impossible without a holistic concept of institution management. If the goals, mechanisms, principles of interdepartmental work are not defined at the level of the administration of the institution, the possible participants are not clearly indicated, and those responsible for the results are not appointed, then the joint activity will be allowed to take its course. Without intra-organizational coordination of actions, each middle manager (department head, foreman) will independently build interdepartmental work on the basis of personal connections and relationships, territorial specifics (the presence of sponsoring organizations in the serviced territory, institutions that can help in solving specific problems).

The dissertation research carried out revealed the fragmentation of efforts within the institutions. The heads of structural divisions in most cases are placed in competition with each other, which leads to the desire of each division to increase its indicators by any means. As a rule, there is an increase in quantitative indicators at the expense of qualitative ones. There is no desire among departments to share their information with others and seek to help each other. For example, the head of a territorial department works with sponsors in his area and may be hostile if a representative of another department of the same institution begins to interact with “his” sponsors, since each department is placed in a situation of competition in the main areas of activity.

Principles and mechanisms of interdepartmental interaction of institutions in the social sphere

Each social problem is unique and requires an individual approach to its solution. However, the process of their resolution has universally valid positions - principles. The principles of interdepartmental interaction are the initial fundamental requirements that govern the interacting subjects when organizing a joint solution to social problems. Principles are the most important foundation for a governance mechanism. They synthesize in themselves social laws and specific approaches to their implementation. The content and direction of the principles of interdepartmental interaction in solving the problems of street children and social orphans is determined by a number of factors: the strategic goals of the state, society as a whole; legislative regulation; scientific validity; goals and nature of joint work; departmental interests: the specifics and importance of their implementation through interaction; subjective factor; availability of a resource base; territorial features: development of social infrastructure, geographic location, local social policy, national composition, etc .; attitude to the interaction of institutions on the part of higher structures; the specifics of the problems being solved. The basic principles of interdepartmental interaction of institutions of the social sphere in solving the problems of orphanhood can be grouped according to several criteria: The criterion of regulatory force (legal, social responsibility of the subjects of management, social control); by the degree of organizational and managerial technologization (the principle of adequacy, feedback, coordination of interdependent actions, the principle of automated accounting in information exchange, the correspondence of functions to the powers vested in them); according to the criterion of compatibility of professional activities of personnel (competence, continuity, consistency of interests, measures of participation in interdepartmental coordination, compliance with the rules of business relations); program-target criterion (complexity and consistency, scientific and methodological substantiation, the principle of end-target orientation, continuity of social assistance to orphans, problem orientation of the activities of institutions); Have a moral criterion in relations with children (principles of social justice, humanism, tolerance, complicity in fate).

In practice, the principles of interdepartmental interaction, as a rule, are not used in isolation, but in close interconnection, which reflects their objective conditionality and directs joint efforts to achieve common goals.

Among the principles of organizing interdepartmental interaction of social institutions in solving the problems of street children and social orphans, one of the most important is the principle of social partnership. In the scientific literature and in practice, social partnership is interpreted ambiguously. Some understand it as a type of relationship between the state, employer and employee. Others understand social partnership in a broader sense, namely, as a specific type of social relations between social subjects (social groups, strata of classes, etc.). Still others - as a worldview basis for coordinating and protecting the interests of various social groups. Following A.I. Sukharev, we believe that social partnership is not reducible only to social and labor interaction. "Interaction becomes a partnership if the interest of one subject cannot be realized without the participation of another and at the same time meeting the needs of other subjects."

Social partnership, as a system of civilized social relations, implies activities based on the coordination of interests, opportunities, methods of work, which ensures the implementation of the mutually intersecting interests of institutions of different departmental affiliation while achieving a common goal. Effective interdepartmental interaction is possible on the basis of respect for the positions and consideration of the interests of the parties, using the advantages of the negotiation process. Partnership is characterized as a process of enhancing common interests 6l.

The partnership nature of the relationship presupposes the materiality of the goals to be achieved. Interdepartmental interaction can be realized on the principle of social partnership, provided that the interests of achieving socially expected goals (effective solution of the problems of street children and social orphans, etc.) dominate the departmental bureaucratic interests, when joint work is a conscious value for all participants rather than the individual actions of each institution. The implementation of these conditions is facilitated by an increase in the importance of social tasks for the functioning of institutions at the level of state management structures and in society. Until state bodies realize the crisis situation in Russian society, the need to implement an adequate family policy, the importance of solving the real problems of children will not be able to dominate the bureaucratic procedure in the functioning of departmental structures. The public should also not be aloof from what is happening and, with the help of appropriate mechanisms, should influence management activities to address the problems of street children and social orphans. All participants in interagency interaction should perceive each other as partners in achieving common goals.

The effectiveness of interdepartmental interaction to a decisive extent depends on the implementation of the principle of social justice. Children who find themselves in a socially dangerous situation do not have the opportunity to use the rights guaranteed by law. The joint work of social institutions should be aimed at preventing this imbalance by providing social guarantees, creating opportunities for equal access to benefits. Compliance with this principle, on the one hand, determines the necessary conditions for the development and dignified existence of a child, on the other hand, it establishes a connection between the specifics of a specific problem and the measure of participation of state structures in the life of a minor.

Overcoming interdepartmental barriers in solving the problems of street children and social orphans

The solution of the problems of child neglect and social orphanhood in the territory is carried out on the basis of interdepartmental interaction. An analysis of the situation of minors in a socially dangerous situation shows that the ongoing interagency interaction is not built optimally. Joint work is hindered by various kinds of barriers, inconsistency of interests and actions of the participants in the interaction. Optimization of interdepartmental interaction of social institutions in solving the problems of street children and social orphans depends on overcoming the barriers that exist in the practice of joint work.

Overcoming obstacles in interdepartmental interaction of institutions is facilitated by the introduction into practice of social and managerial technologies of cooperation (for example, mastering the procedures for coordinating interests, decisions, actions; creating a single information and analytical base; concluding agreements on mutual understanding; optimizing document flow between institutions, etc.).

According to the developed by V.K. Potemkin and M.Kh. Using the Balkiz principle for assessing the effectiveness of the social partnership mechanism 79, one can single out the main factors that stimulate interagency interaction in solving the problems of street children and social orphans in the territory, and the restrictions that prevent it (see Table 5).

The highlighted factors and limitations of interagency interaction in solving the problems of street children and social orphans in the territory are of interest from a practical point of view, since they are the object of state influence in order to optimize the existing

When organizing interagency interaction, it is important to study and, if necessary, optimize the two previous types of interaction. The formation of interdepartmental interaction is carried out through the action of internal and external mechanisms. The effectiveness of interdepartmental interaction depends on the intradepartmental one, which in turn is determined by the activities of individual institutions and the coordinated actions of all departments and individual employees of each institution.

Interorganizational collaboration based on partnership means the formation of coordinated actions between the divisions of the organization. The activities of the departments of the institution should be based on a common goal, a single policy, perceived by everyone as a single whole. Departments within an institution will function effectively and harmoniously if the structure and functions are consistent with the objectives of the organization. The design of the organizational structure should be based on the strategic goals and plans of the institution, as this ensures its sustainability. “The structure of the organization is developed from top to bottom. This makes it possible to proceed from the hierarchy of goals and objectives, to optimize the implementation of building a chain of interconnected elements of the horizontal and vertical structure, to establish a correlation between official powers and responsibilities ”80.

Intra-organizational interaction depends on the logic of managerial and organizational culture, the consistency of goals and objectives of structural units and individual performers, the compliance of their rights and responsibilities, resource provision and set goals, from communications and feedback within the institution. In management, there is an opinion that structural units, as a rule, are more interested in achieving their goals than the overall goal of the institution (M. Mescon). Management will be effective if the feeling of "WE" dominates in the institution, each specialist feels himself to be a necessary link in the general system. Intradepartmental interaction should be based on the commonality of values, goals and objectives of the functioning of all incoming institutions, their interdependence.

Intradepartmental and interdepartmental interaction is a dialectical unity. On the one hand, if there is no intradepartmental interaction, then we cannot talk about the effectiveness of interdepartmental relations. On the other hand, commitments to interdepartmental interaction can have a positive impact and accelerate the resolution of many intradepartmental problems.

Social protection of the population is a relatively young sphere of practical activity of the state in the implementation of the main directions of social policy. A number of researchers note that today social work in general is focused on meeting the vital needs of clients, without qualitatively changing the social situation that caused difficulties 81. The possibility of direct contact with clients, their problems determines the adaptive potential of social protection institutions 82. Optimal forms of social security are being developed and providing social assistance to the population. Social protection is trying to organically integrate into the existing system of the social sphere. The analysis of the need for the existence of institutions and the demand for the services offered among the population is underway. Territorial institutions, being in direct contact with clients, have a unique opportunity to build their activities on the basis of an analysis of the needs of the population and taking into account the real state of the social environment.

Today, in order to identify problems that arise within the institution, analyze the relevance of activities, adjust and optimize management decisions, it is relevant to conduct sociological support, the purpose of which is to optimize activities based on the scientific justification of management actions. Sociological support ensures the relationship between science and practice, contributes to the flexibility of the management system, makes it possible to quickly respond to the current situation, adjust the tasks of activity in connection with the emerging demands of the environment.

Since 2002, the specialists of the Center for Social Assistance to Families and Children in Kemerovo have been working on the implementation of the consulting project "Sociological support for social development of the TsSPSiD" 84. The goal of the project is to optimize the institution's activities in the provision of social services to the population. The experience of establishing institutions of social assistance to families and children in Russia shows that it is necessary to develop as complete a list of services as possible, taking into account the specifics of the territory. In the course of the implementation of this project, taking into account the requirements of the population, a list of social services of the Center has been developed. Packages of services have been formed according to the criteria of compulsory and optional, uniqueness and complexity of provision. Service packages have been created for various categories of the population served by the TsSPSiD.