1、 中国儿童福利示范 项目 （ 2010-2015） 中期评估报告 中国儿童福利示范项目 协调办公室 北京师范大学中国公益研究院儿童福利研究中心 二 一三年四月 本报告版权归中国儿童福利示范项目所有，未经授权不得以任何形式 发布、复制，如引用、刊发，须注明出处为 中国儿童福利示范项目中期评估报告 ，且不得对本报告进行有悖原意的删节和修改。 中国儿童福利示范项目 协调办公室 北京师范大学中国公益研究院儿童福利研究中心 2013 年 4 月 24 日中国儿童福利示范项目中期评估小组 组长：武福祥 民政部社会福利 和 慈善事业促进司儿童处处长 卜 一 田 联合国儿童基金会驻华代表处艾滋病处处长 高华俊
2、 北京师范大学中国公益研究院常务副院长 成员：黄晓燕 南开大学教授，四川项目区专家 童小军 中国青年政治学院教授，新疆项目区专家 范 斌 上海师范大学教授，云南项目区专家 花菊香 南京师范大学教授，山西项目区专家 张长伟 河南师范大学教授，河南项目区专家 王金霞 民政部社会福利和 慈善事业促进司儿童处主任科员 高玉荣 北京师范大学中国公益研究院儿童福利研究中心主任 徐 珊 北京师范大学中国公益研究院儿童福利研究中心项目官员 李 洁 北京师范大学中国公益研究院儿童福利研究中心主任助理 张 柳 北京师范大学中国公益研究院儿童福利研究中心高级分析员 I 目 录 第一部分 总报告 . 1 ABSTRA
3、CT . 3 摘 要 . 11 一、 概述 . 18 二、 评估发现 . 25 三、 项目成果 . 60 四、 项目区面临的挑战 . 66 五、 建议与展望 . 71 六、 总报告起草说明 . 74 第二部分 分报告 . 75 山西项目区中期评估报告 . 77 一、 儿童生活的社区环境变化 . 78 二、 儿童发展的总体状况 . 87 三、 儿童脆弱性的改善情况 . 96 四、 村干部对农村儿童福利主任制度的 评价 . 100 五、 村儿童福利主任对农村儿童福利主任制度的评价 . 102 六、 民政干部对农村儿童福利主任制度的评价 . 104 河南项目区中期评估报告 . 106 一、 项目背景
4、 . 106 二、 评估原则与方法 . 108 三、 评估结果 . 111 四、 政策建议 . 132 四川项目区中期评估报告 . 137 一、 项目背景与进展情况 . 137 二、 中期评估的目标与内容 . 139 三、 项目的直接受益人群 儿童脆弱 性的变化 . 140 II 四、 项目的执行主体 儿童福利主任 . 152 五、 项目在儿童福利制度建设中的作用 . 160 六、 项目工作中存在的问题 . 162 七、 项目实施的展望 . 165 附录 1 儿童福利主任访谈列表 . 167 附录 2 各村落特殊儿童数目列表（四川试点中期评估数据统计表， 2012.7） . 168 云南项目区
5、中期评估报告 . 169 摘要 . 169 前言 . 169 一、 项目工作开展状况介绍 . 171 二、 项目区儿童脆弱性及其变化情况分析 . 179 三、 儿童能动性的培育：项目开展的目标与成效 . 211 四、 总结与展望 . 225 新疆项目区中期评估报告 . 235 摘 要 . 235 前 言 . 235 一、 项目评估 . 236 二、 典型案例说明 . 250 三、 评估分析 . 255 四、 政策建议 . 260 五、 问题探讨 . 262 结语 . 263 附录 1： “中国儿童福利示范项目 ”新疆试点中期评估活动 . 265 附录 2： 新疆项目区中期评估团队名单 . 26
6、8 致 谢 . 269 第一部分 总报告 -3- ABSTRACT Though a middle income country with GDP per capita exceeding $4,000 in 2010, China still has tens of millions of vulnerable children whose needs are not met because of Chinas underdeveloped child welfare system. A survey in 2010 in 120 villages of 12 counties in Hen
7、an, Shanxi, Yunnan, Sichuan and Xinjiang Provinces found that 3% of the 80,000 children surveyed did not have enough food, 13% 7-15 year-old and 69% children with disabilities did not go to school, 5% had no birth registration, and 2% without family care because their parents were in prison or passe
8、d away. On the other hand, low economic performance and limited local financing make it difficult for local people to access to public. Poor transportation, language barriers and local traditions add to the difficulty. To address the unmet needs of vulnerable children, Ministry of Civil Affairs (MCA
9、) joins UNICEF, Beijing Normal University (BNU) and partners launched the China Child Welfare Demonstration Project (2010-2015) in 120 villages of 12 counties in Henan, Shanxi, Yunnan, Sichuan and Xinjiang Provinces, to pilot the model of universal (unconditional) child welfare system. This Mid-term
10、 review started from October 2012 to look at the progress and challenges of the Demonstration project. The review analysed the quantitative and qualitative data acquire from project reports, questionnaire survey among 1,712 children and their caregivers on the uptake of child welfare services, inter
11、views of 196 staff and technical focal points from MCA and project sites on the progress, impact and constraints of the project, as well as direct observation. The review finds: 1. The project established information management and service delivery mechanisms at grassroots level to evidence the buil
12、ding of child welfare system. 1) A monitoring system to inform decision making The project filled the gap in the collection, management and use of the information on children and their families. In view of the multidimensionality of poverty, it developed a database and supporting information collect
13、ion tools to manage the information on: - Children: care, health, behaviours, education, protection, social security and welfare; -Parents/caregivers: health, risky behaviours, migration, criminal records, education, income, housing, and water and sanitation, and - Communities: economic situation an
14、d delivery of social welfare, health care and -4- education services. All the children in project villages have their own profiles updated in the database, which can be uploaded to the information system of Civil Affairs to reflect childrens changing situation and needs. Most children and parents fe
15、lt that the child welfare directors were quick in reporting their needs to responsible departments. Social media and online communication were also used to connect children with child welfare directors, thus to collect and share information, and to solve problems promptly. The project also has an ex
16、pert team collecting and analysing information regularly. By the time of this review, the team had shared with civil affairs departments at county, prefecture and provincial levels studies on childrens vulnerability, welfare needs, social assistance, and the needs of women and children affected by A
17、IDS, as well as annual stocktaking reports on child welfare policies and annual project reports. Some project counties also applied the project model to non-project villages to understand the baseline situation of orphans and vulnerable children. Some counties used the database to analyse the needs
18、of children and developed categorised assistance accordingly. For example, project villages in Liangshan Prefecture (Sichuan) defines children without caregivers into 6 types and scaled up this approach prefecture-wide to inform the making of assistance policies for vulnerable children. 2) A service
19、 delivery mechanism at grassroots level The project has established a child welfare service system at grass-root level, which not only brought services to every child, but expanded the package to vulnerability monitoring, directly addressing child rights issues and coordinating cross-sector solution
20、s. The package covers birth registration, living allowances, medical assistance, house repairing, schooling assistance, and social inclusion and protection. Another breakthrough was the benchmark of allowances for children with special needs proposed. The project did a costing and set a benchmark th
21、at is 2-3 times that of minimum living allowances. Child welfare directors are the first points of contact who report, coordinate and direct provision of one-stop service for children and families. This convenient, fast, one-stop service gained credit to the government. By the time of mid-term evalu
22、ation, child welfare directors under led by county civil affairs bureaus had covered the “last one mile“ in service delivery, brining information, services and resources children and families. A Civil Affairs Bureau leader from Liangshan Prefecture said, “Child welfare directors understand our needs, speak both local language and Mandarin, and are well-educated. They are clear about which children can enjoy what national policies, which are eligible to apply for
