儿童主任制度执行困境与出路:从街头官僚视角对26位儿童主任的质性分析  

Execution Dilemma and Solutions of the Child Director System:A Qualitative Analysis of 26 Child Directors from the Perspective of Street-Level Bureaucracy

作　　者：李杨 刘志军[2,3] LI Yang;LIU Zhijun

机构地区：[1]衢州市慧城产业发展集团有限公司 [2]浙江大学社会调查研究中心,杭州310058 [3]延安大学乡村发展研究院

出　　处：《社会工作》2023年第3期26-37,102,103,共14页Journal of Social Work

基　　金：延安大学乡村发展研究院2022年度产学研合作项目的支持。

摘　　要：儿童主任制度从2010年试点到2019年全面实施,至今已取得一定成效,但制度“变通”执行甚至消极执行普遍存在。本文引入街头官僚理论视角,基于参与观察及对26名儿童主任的深入访谈,从制度执行人的微观角度自下而上分析儿童主任制度的执行状况,探讨儿童主任制度设计与实践之间的内在张力。根据自由裁量空间和责任范围大小两个维度,构建权力和责任分析的二维框架,将儿童主任分为四种类型并作行动逻辑分析。分析结果表明,多数儿童主任的行动策略符合街头官僚“激励不足、变通执行、规则依赖和一线弃权”的行动逻辑,出现职责不清、缺乏认同、共谋应付、有名无实、有而不专等多种问题,严重影响执行效果。针对上述问题,本文建议从制度设计上完善儿童主任的权责规定、从制度实践上优化控制体系,以实现权力与责任、规则执行与自由裁量之间的平衡。Since 2010,“Child Priority”has been incorporated into China’s national strategy,and China’s child welfare system is gradually transitioning from basic protection to categorized protection,from material security to material&service security,and from supplementary welfare to moderate universal welfare.In this context,the Child Director System has emerged.The Child Director System originated from the pilot project of the“China Child Welfare Demonstration Program”launched in 2010 by the Ministry of Civil Affairs in collaboration with UNICEF and the China Philanthropy Research Institute.The project aimed to assist vulnerable children affected by HIV/AIDS and conducted experiments in 120 villages across 12 counties in five provinces in central and western China to establish child welfare directors.The Child Director System was thus initiated.In 2019,the Ministry of Civil Affairs and others issued a document requiring village(community)committees to appoint“child directors”specifically responsible for child care and protection services.As of the end of 2021,there were a total of 651000 child directors in China,and the Child Director System has been fully implemented nationwide.According to our investigation,child directors are generally appointed from within the village or community,often held by the chairperson/director of the Women's Federation or the civil affairs officer,and in some rare cases,by the village head or PCP secretary,with only a few places having dedicated fulltime child directors,such as Feidong County in Anhui Province.Since the pilot phase in 2010 until full implementation in 2019,China’s Child Director System has achieved certain results,but there is a widespread issue of flexible or even passive implementation of the system.This article adopts the perspective of Street-Level Bureaucracy Theory to analyze the implementation of the Child Director System from the micro perspective of the implementers,exploring the inherent tensions between the design and practice of the Child Directo

关 键 词：儿童主任制度 儿童主任 街头官僚 儿童福利服务 社会治理 

分 类 号：C916[经济管理]