| 摘要: | 保母托育發展由來已久，對於三歲以下的嬰幼兒家長，保母是嬰幼兒之母親及其家人之外主要的照顧人員。無論就供給面或需求面而言，保母是托育服務中最普遍的選擇，亦是相較於機構式照顧較有利於三歲以下嬰幼兒發展的服務方式，在收托人數少情形下，可使嬰幼兒獲得較多關注與互動機會，有助於建立社會與行為關係。因此，保母托育服務的重要性與需求性與日遽增，服務品質也相對地受到重視。另隨著婦女勞動參與率的改變、少子化的現象及家庭結構改變等國內社會背景的因素使得國人產生不同的托育需求，因此建構社區化托育服務網絡，建立優質專業的居家式托育來滿足眾多家長托兒之需求，乃成為內政部兒童局之重點業務，期藉由輔導保母發揮專業知能，來協助家長解決托兒問題，並使幼兒獲得妥善照顧，讓幼兒、家長、與保母三者之間，均能獲得妥適的支持與協助。
臺灣近十年為提供家庭更多友善兒童照顧政策，其中由內政部兒童局2000年3月起指示各縣市政府社會局委託民間機構成立「社區保母系統」，為家長及保母搭起供需的橋樑，以提昇保母工作專業化及保母的工作權益，這是政府對婦女福利、托育服務提升的一個重要措施。故本研究試圖從國家照顧角色介入提供服務，透過「社區保母系統」的發展建構家庭式托育服務的輸送流程，以瞭解社區保母系統實施之現況。本研究採質性研究，以文獻資料分析、焦點座談及跨國比較作為資料蒐集與分析。除透過瑞典、英國與日本保母系統之管理進行比較分析外，並同時探討我國社區保母系統之國家政策制度如何形塑相關政策安排，以便平衡家庭照顧之問題，以回應現階段兒童照顧因應社會變遷所產生的風險問題。以下針對研究結果與建議進行說明：
一、 研究結果：
（一） 從瑞典、英國與日本保母系統之管理進行跨國比較分析結果：
社會民主體制國家的瑞典，保母制度彈性，但有國家聘任之公共托育保母為一大特色；另外自由主義體制的英國，對保母制度採取強制登記作為，不可私自收托幼兒，並同時必須具備國家證照或培訓課程結業，採多元認證制度無執照年限；而屬東亞模型與我國情文化相近之日本，則對於保母有性別及年齡之限制，無嚴格證照制度但必須經過「全國家庭福祉員資格認定」制度之規範要求，使得以登記收托幼兒，同時對於收費標準採公開透明制度。
（二） 焦點座談結果：
1.社區保母系統督導與管理運作備受肯定：系統承辦單位面對保母的回應，對於社區保母系統運作執行皆持肯定看法，讓保母及家長受益甚多，惟仍對於進修課程之需求、保母媒合效果以及托育津貼補助部分感到仍有改善與加強空間。
2.地方政府因應中央修正居家托育實施原則：台北市對居家保母托育實施原則之執行更為嚴謹與重視，主因在於為首善之都且位居都會區域，社區保母系統執行多屬穩定，反觀中央實施原則的研擬，現僅符應政策現況，對於實質監督與管理仍落於地方政府與承辦單位身上，故思考執行範疇相對周延完整，有助於承接具體而有效的執行。
3.社區保母系統轉型調整之困境
（1）社區保母系統承辦單位業務負荷增加：仍以目前立法通過有關居家式須採登記制度之規劃反應最為熱絡，承接保母系統單位對於隨之而來的訪視人員的工作負荷量感到憂心，認為中央這樣的做法確實已造成地方政府業務權責之困擾。
（2）居家登記制度管理機制
社區保母承接單位及保母認為可以採原區加入系統的管理方式因應即可，若遇到區域較大且保母較多得承辦單位，可再研擬支援單位協助，以作為過度期之試辦參考。另值得關注的是「保母資格、訓練及證照」、「保母及社區保母系統品質」、「收托人數及年齡層」、「托育補助」四大部分，仍緊扣著第一線居家保母工作權利保障及專業進修成長需求，但仍有諸多保母認為開放未取得證照保母其實是剝奪工作權利。然隨著立法通過的已勢在必行，可提供地方政府試辦機制，加強溝通與說明，以因應未來社區保母系統由高度監督管理轉化為低度自主管理的教育輔導。
二、建議
（一）政策供需面
1.鼓勵保母發展多元托育服務，增能保母提供特殊需求家庭服務
2.整合各類社會福利資訊系統，並顧及弱勢族群資訊獲得之管道
（二）政策執行面
1.積極培育專業居家式訪督人員，提供彈性福利待遇
2.強化親職支持與建置社區為基礎之「托育資源中心」
3.建構輔導與評鑑後續追蹤機制，加強獎勵觀摩交流
（三）政策規畫面
1.加快兒童照顧之國家政策定位，並研擬階段性計畫目標與內容
2.因應區域特性及彈性調整政府與社區保母系統之功能角色分工
3.依據兒童及少年福利與權益保障法，建置完善之托育管理機制
綜合以上從供需面、執行面及政策面所言建議外，比起英、美等國長期推動居家托育服務的經驗，臺灣尚屬起步階段。然嬰幼兒研究向來是學術界關注但卻難深入的領域，尤其伴隨著少子化議題而來，所需進一步探討之政策面，實宜投入更多學術研究資源。故未來建議政府應鼓勵相關學術研究之進行，逐年建構我國嬰幼兒托育長期研究資料庫及研發重點，以建立適合嬰幼兒學習活動相關教材與指引，進而發展臺灣兒童照顧服務特色。
Nursery service have development for a long time, for parents of infants and young children under the age of three, nanny is the main caregiver except their mother and families. Nanny is the most popular choice of nursery services, regardless of the supply or demand side. It’s also the conductive service to children under age three, comparing to the institutional care. There’s benefit for children to get more attention, more opportunities for interaction, and more social and behavioral relations due to the nanny only care less children. Therefore, the importance and demand of the childcare services is ever increasing, and the service quality is also important.
With the lift in women's labor force participation rate and the social change of the low birth rate and family structure derived different childcare needs. The Children's Bureau of the Ministry of the Interior committed to develop community-based child care service network and professional family child care to meet the needs of parents so that the children receive proper care and the parents and nannies get appropriate support and assistance.
The government in Taiwan dedicated in providing friendly child care policy in recent years. In March of year 2000, the Children's Bureau, Ministry of the Interior instructed bureau of social affairs of district government commission non-government organizations to set up "" to match services for parents and nannies. It also aimed to enhance the interests and specialization of nanny.
This study attempts to understand the current status and implementation of "community nursery service system" which constructed the family child care service delivery process. The researcher adopted qualitative methods, including the literature analysis, focus groups and cross-country comparisons as the data collection and analysis. Through the analysis of management of nanny system in Sweden, Britain and Japan, and explore the community nursery service system of national policies in Taiwan, this study try to response the problems and risks of child care that response to social change in phase. The findings and recommendations of this study are described as follow.
I. research findings
a. The cross-country comparative analysis of nanny system management in Sweden, Britain and Japan
The nursery service system of Sweden, a social-democratic country, is flexibility. She has public child care nanny as her major feature. The British, a liberal regime, takes the compulsory registration nursery service system and the Non-contractual care service is not allowed. Nanny should have national certification (NEEB) or trained in professional courses (CACHE) and the licenses’ valid for expired are not limited and they could certificated by multi-way. Japan and Taiwan are similar in culture and all belong to East Asian model country. In Japan, the nanny’s gender and age are restricted, though the certification is not strongly required but the nanny still should obey the requirement of national qualification rule. After that, the nannies could enroll for providing nursery services with transparent fee system.
b. The analysis of focus group
i) The nursery service systems applaud by nannies and parents due to the system help them a lot. The nannies demand for more training, matching efficiency, and allowance of child care.
ii) The district governments revise the implementation rules. Taipei city government rigorously execute the family nursery implementation rule due to the nursery service systems in capital district are relatively stable in operation and local government play the role of governor and supervisor substantially.
iii) The dilemmas of nursery service system’s transition.
a) The loading of nursery service system increased because the worker expected to visit nannies who apply for the registration institution of family caregiver.
b) The manage mechanism of registration institution of family caregiver. The agencies of nursery service system and nannies suggested managing by district, if there’s more nannies in the same system, the agency could apply for extra resources. Besides, the qualification, training and certification of caregivers, the service quality of systems, the numbers and age of children in care, and the aid for nursery service are the concerns from nannies. The local government should held some pilot institution preparing for the autonomy management of nursery service system in the future.
II. Suggestions from this study
a. the supply and demand of policy
i) To encourage nannies developing multiple care services and empower them to provide care services for special need families.
ii) To integrate social welfare information system, and help needy group easy getting information.
b. the execution of policy
i) To train the professional supervisors of family nursery service and guarantee the remuneration.
ii) To enhance the parental supplement and construct the community based nursery service resource center.
iii) To plan the following manage mechanism of evaluation and supervision and encourage the interaction.
c. the planning of policy
i) To ensure the position of national child care policy and deliberate the developmental goals and contents.
ii) To adjust the division of work and function flexibly between local government and nursery service system in considering different characters of districts.
iii) To deliberate consummative governor and consultant mechanism of child care services in the basis of Child and Youth Welfare and Protection Act.
To sum up above, Taiwan is still in toddler stage comparing to western countries who have more experience in promoting family nursery services. In terms of the low birth rate, the academic should pay more attention and resources on researches of infants and young children. Again, this study suggest the government might encourage the academic to produce more researches and construct long-term database in order to develop the characteristic of Taiwan. |
