制度环境与组织结构:基层儿童督导员政策执行困境及其治理

Institutional Environment and Organizational Structure:The Dilemma of Policy Implementation and Governance of Primary-level Child Supervisors

儿童督导员作为我国基层政府部门中负责推进留守儿童和困境儿童关爱保护服务政策落地到“最后一公里”的重要执行者,直接影响基层儿童政策执行效果。本研究基于“制度环境-组织结构”的政策执行整合框架,运用深度访谈和问卷调查的方法,发现儿童督导员政策执行面临着上级任务要求和儿童服务需求不匹配的制度环境“中间挤压”、岗位人力分配和资金统筹方式不合理的组织结构“内部掣肘”以及专业服务能力和自身职业认同的执行者配置“顾此失彼”的结构性困境。因此,建议创设儿童督导员政策执行的专门机构,负责牵头儿童保护工作;建立资源共享的政社合作机制,提高儿童福利供给配置效率;加强儿童督导员的专业培训力度,培育基层儿童服务复合型人才。

The child supervisor is an important policy implementer in the civil affairs department of the grass-roots government in our country responsible for promoting the implementation of the care and protection service policy for left-behind chil-dren and children in distress to the"last mile".From the perspective of vertical hierarchical management,they are responsi-ble for the leaders in charge;from the perspective of horizontal departmental responsibilities,the business guidance of chil-dren’s directors directly affects the implementation of children’s policies at the grassroots level.Existing research mostly fo-cuses on the function setting of child supervisors in local practice,and few focus on empirical research at the policy imple-mentation level,and the relevant policy implementation theories are relatively insufficient.Based on the policy implementation integration framework of"institutional environment-organizational structure",this study reveals the institutional environment,the organizational structure of grassroots child supervisors’policy implementa-tion,and the mechanism by which the configuration of policy executors affects the effect of policy implementation,so as to escort grassroots child care and protection work.Among them,the institutional environment is mainly manifested in the stan-dards and goals of policy implementation,the department-led mechanism of the civil affairs system,and the organizational structure,includes the arrangement of post-human resources,the cooperation mechanism of government department func-tions,and funding guarantees.The research used in-depth interviews and questionnaires.We interviewed four child supervi-sors and a leader of the uninsured centre in X City.Using the questionnaire survey method,we distributed 128 question-naires through the Internet,and recovered 96,with an effective recovery rate of 75%.The study found the following structur-al dilemmas faced by child supervisor policy implementation.First,the institutional environment in which the higher-level task requirements and children’s service needs do not match"squeeze in the middle".First,the policy standards are not specific enough.The work of child supervisors lacks pro-fessional assessment standards,and the corresponding work incentives are lacking.Second,policy objectives are relatively lagging behind and cannot be adjusted in a timely manner to cope with changes in policy practices.Third,it is difficult to es-tablish a joint organization mechanism for multi-departmental cooperation in policy implementation.This greatly affects the enthusiasm of children’s supervisors,and even affects the public’s correct understanding of the implementation of children’s policies due to the direct confrontation of the public’s demands and conflicts of interest.Second,the unreasonable organizational structure of post workforce allocation and fund co-ordination is"internal con-straints".Policy implementation needs to match the organization’s executive body to ensure and promote it.However,the or-ganization’s executive body will rely on human resource arrangements and capital co-ordination methods in the limited exe-cution space reserved by the"middle squeeze"in the institutional environment.The right to obtain a reasonable interpreta-tion of the operation of the organizational structure for the implementation of the policy has resulted in the arrangement of human resources of“many people and few people”and the fund co-ordination method of“fees are not transferred as need-ed”.It is not perfect,which greatly affects the progress and effectiveness of the implementation of the policy.Third,the configuration of the executors of professional serviceability and their own professional identity is"caring for one thing and losing the other".The configuration of policy executors is related to the degree of refinement of policy imple-mentation,which is mainly reflected in the intentions and preferences of the executors.Due to the fact that child supervisors are in the"middle squeeze"position between administrative task requirements and children’s service needs in the environ-ment of the grass-roots children’s policy implementation system,their policy cognition is vague and even contradictory,which leads to the configuration of policy executors"caring for one thing and losing the other".It is mainly manifested in the imbalance between professional serviceability and their own professional identity.Child supervisors cannot match resources due to insufficient resources,and they lack service experience.In addition,child supervisors generally have low education and do not master professional methods of child service,which has a great impact.Service effects of child policy enforce-ment.In response to the above structural difficulties,the study gives the following suggestions.First,create a special agency for the implementation of the child supervisor policy,which is responsible for taking the lead in child protection work.This includes formulating relevant work systems and norms,promoting the professionalization and consistency of policy stan-dards and goals,and guiding child supervisors to form positive role models.The government can actively cooperate with pro-fessional social organizations to establish local policy implementation norms and standards to enhance the influence of local children’s work.Second,establish a government-social cooperation mechanism for resource sharing to improve the efficiency of child welfare supply and allocation.The first is to encourage the participation of social forces such as non-governmental organiza-tions,enterprises,and public welfare persons,expand the space for government-social cooperation in the care and protection of left-behind children and children in distress,promote resource sharing,reduce the cost of government policy implementa-tion,and improve social benefits.Second,based on the establishment of a special agency for the implementation of child su-pervisor policies,improve the efficiency of child welfare supply allocation,achieve accurate classification and guarantee,im-prove the linkage mechanism of grass-roots government functional departments,and enhance the breadth and effectiveness of policy implementation.Third,strengthen the professional training of child supervisors and cultivate grass-roots child service compound tal-ents.It is necessary to focus on coordinating the integration and construction of grass-roots children’s work teams and social workers to achieve complementary advantages,focusing on training and supervision through professional methods such as social work,so that grass-roots children’s workers can learn the professional concepts and practical knowledge of social work,and improve the implementation of children’s policies.Experience and theoretical knowledge pedigree,promote the innovation of children’s service concepts and intervention methods,truly become a compound talent for grass-roots chil-dren’s policy implementation and service supply,and promote the effective implementation of policies.