教育乃立国之本，强国之基，中小学图书馆对保障学生的学校教育有效性具有重要意义。近年来，全域阅读上升为国家发展战略，另一方面，信息环境的变化催生了图书馆进行数智化发展的变革要求，对中小学图书馆发展来说，既是一个推动中小学图书馆事业发展的好机遇亦是一个全新的挑战。中小学图书馆事业发展受国家政策的影响较大，因此，在中小学图书馆政策执行的动态过程中不断实现政策定位目标、完善政策实施路径思路、推动政策执行保障，能够保证中小学图书馆的高质量发展。研究政策执行过程中的阻滞及其原因对提高政策执行有效性，推动实现政策目标具有重要的意义。

本研究立足于公共政策执行的视角，运用文献研究法、访谈法和调查法。首先，通过系统梳理国内外相关文献，理清中小学图书馆的研究现状。其次，对政策发展历史，进行归纳、对比、评析，围绕我国中小学图书馆政策演进的特征和逻辑展开研究，总结出中小学图书馆政策演进特征。随后，选取北京市的中小学图书馆进行问卷调查及政策执行机构相关人员进行访谈。根据访谈和调研问卷结果，结合霍恩-米特政策执行系统模型中影响政策执行的六大要素对北京市中小学图书馆政策执行现状进行问题分析和政策成效评价，寻找北京市中小学图书馆政策执行阻滞的原因，发现当前北京市中小学图书馆政策执行中存在：政策目标和考核标准设置不合理、资源配置分配不均匀、政策执行方式缺乏针对性、执行机构工作职责不明确、执行环境不协调、执行人员专业能力不足和缺乏激励机制六个方面的问题。

最后在此基础上对如何改进中小学图书馆政策执行进行思考，结合霍恩-米特模型和分析得出的中小学图书馆政策演进特征，从科学制定政策、优化执行主体、提高政策的认同度、改善政策执行环境等方面为促进中小学图书馆政策执行提出对策：（1）科学制定政策需要制定精准的中小学图书馆政策的目标定位与执行标准，根据各区实情统筹协调目标，多维度细化政策执行的考核标准；（2）完善中小学图书馆建设的资源配置，加大财政支持力度，改善人力资源配置，加强信息资源建设，以数字化赋能图书馆发展；（3）充分发挥中小学图书馆政策执行机构的执行力，加强执行机构的协同执行，完善政策执行的评价反馈渠道，充分了解执行主体人员、目标群体的利益诉求，加大政策宣传力度，提升政策认知水平和认可度；（4）加强政策执行机制，各级执行机构完善激励机制，提升执行人员的政策执行意愿；（5）优化政策执行的系统环境，通过信息公开，充分发挥政府职能，倡导文化机构、社会组织、社工、志愿者等参与中小学图书馆建设，发挥群众监督力量。

Education is the foundation of a country and the foundation of a strong nation. Primary and secondary school libraries are of great significance in ensuring the effectiveness of school education for students. In recent years, a national reading campaign has become a national development strategy. On the other hand, changes in the information environment have given rise to the demand for digital development in libraries. For the development of primary and secondary school libraries, it is not only a good opportunity to promote the development of the primary and secondary school library industry, but also a new challenge. The development of primary and secondary school libraries is greatly influenced by national policies. Therefore, in the dynamic process of policy implementation, continuously achieving policy positioning goals, improving policy implementation path ideas, and promoting policy implementation guarantees can ensure the high-quality development of primary and secondary school libraries. Studying the obstacles and their causes in policy implementation is of great significance for improving the effectiveness of policy implementation and promoting the achievement of policy goals.

This study is based on the perspective of public policy implementation, using literature review, interview, and survey methods. Firstly, by systematically reviewing relevant literature both domestically and internationally, we aim to clarify the current research status of primary and secondary school libraries.

 Secondly, summarizing, comparing, and evaluating the history of policy development, conducting research around the characteristics and logic of policy evolution in primary and secondary school libraries in China, and summarizing the characteristics of policy evolution in primary and secondary school libraries.

 Subsequently, a questionnaire survey was conducted on primary and secondary school libraries in Beijing, and relevant personnel from policy implementation agencies were interviewed. Based on the results of interviews and research questionnaires, combined with the six elements that affect policy implementation in the Horn Mitt policy implementation system model, this paper analyzes the current situation of policy implementation in primary and secondary school libraries in Beijing and evaluates the effectiveness of policies. The reasons for the delay in policy implementation in primary and secondary school libraries in Beijing are identified, and it is found that there are six problems in the current policy implementation of primary and secondary school libraries in Beijing: unreasonable setting of policy goals and assessment standards, uneven allocation of resources, lack of targeted policy implementation methods, unclear job responsibilities of executing agencies, uncoordinated execution environment, insufficient professional ability of executing personnel, and lack of incentive mechanisms.

Finally, based on this, we will think about how to improve the policy implementation of primary and secondary school libraries. Combining the Horn Mitt model and the analysis of the evolution characteristics of primary and secondary school library policies, we will propose countermeasures to promote policy implementation from the aspects of scientific policy formulation, optimization of execution subjects, improvement of policy recognition, and improvement of policy execution environment. (1) Scientific policy formulation requires the formulation of precise target positioning and execution standards for primary and secondary school library policies, coordinated goals based on the actual situation of each district, and multi-dimensional refinement of policy execution assessment standards; (2) Improve the resource allocation of primary and secondary school libraries, increase financial support, improve human resource allocation, strengthen information resource construction, and empower the development of libraries with digitization; (3) Give full play to the execution power of policy execution agencies in primary and secondary school libraries, strengthen the collaborative execution of execution agencies, improve the evaluation and feedback channels for policy execution, fully understand the interests and demands of the executing personnel and target groups, increase policy publicity efforts, and enhance policy awareness and recognition; (4) Strengthen policy implementation mechanisms, improve incentive mechanisms at all levels of implementing agencies, and enhance the willingness of policy implementation personnel; (5) Optimize the system environment for policy implementation, fully leverage government functions through information disclosure, advocate cultural institutions, social organizations, social workers, volunteers, etc. to participate in the construction of primary and secondary school libraries, and leverage the power of public supervision.