建设高质量教育体系已成为新时代的重要任务。作为国民教育体系奠基阶段的学前教育，应秉持高质量发展目标，为建设教育强国奠定基础。在全国积极推进学前教育优质普惠的政策背景下，公办幼儿园（简称“公办园”）教师规模不断扩大，公办园教师队伍作为学前教育扩优提质的重要助推力量，对其科学适宜的管理能保障师资队伍与园所建设。然而，不同用人方式教师管理现存诸多问题，以用人方式为视角分析教师管理存在差异的研究也较为缺乏。因此，探究公办园不同用人方式教师管理的现状与问题、主要原因，并提出优化公办园教师管理的对策建议显得十分必要。

本研究选择战略人力资源管理理论、综合激励理论，采用文献法、访谈法和问卷法，全面探究S省公办幼儿园不同用人方式教师管理的状况。第一，对公办园不同用人方式教师管理的政策文本与已有文献进行梳理分析；第二，对S省行政管理人员、公办园举办者或园长、公办园不同用人方式教师以及专家学者深入访谈，对S省公办园不同用人方式教师发放问卷，了解教师管理的现状与问题，探析四类教师的管理存在哪些差异，并挖掘问题的原因；第三，基于对数据的分析，提出加强S省公办园不同用人方式教师管理的对策建议。

首先，当前S省公办园教师管理日益改善，但具体到编制、备案制、劳务派遣、自聘教师的管理仍然存在问题亟需引起关注。准入管理上，一方面，科学开展教师准入管理，自聘教师准入条件与标准仍需重点落实；另一方面，教师多以签订聘用与劳动合同为主，四类教师合同性质均不规范。同时，教师合同签订均有时限要求，派遣与自聘教师订立时限问题相对突出。待遇管理上，一方面，教师工资水平较低且与实际工作量不匹配，自聘教师工资水平较低。同时，教师工资增长依据一定方案，劳务派遣与自聘教师工资增长机制有待明晰；另一方面，教师社保享有项目总体乐观，自聘教师住房公积金保障最差。同时，教师社保缴纳费用良好，编制、备案制教师与其余教师社保类型存在差异。培训管理上，教师外出培训机会逐渐充盈，劳务派遣与自聘教师培训机会不足。此外，高层级培训机会普遍缺乏，劳务派遣与自聘教师尤为严重。晋升管理上，职称晋升机制缺乏适宜性，编外教师职称获评难度大。此外，教师拥有岗位晋升机会但上升空间窄，中高层岗位偏向编制教师。退出管理上，教师退出程序模糊，劳务派遣与自聘教师退出程序有待完善。此外，教师多为主动辞职，不同用人方式教师退出方式差异明显。

其次，在理论基础的指导下，本研究将从外部与内部角度出发剖析公办园教师管理存在问题的原因。外部原因方面，一是幼儿教师法律身份模糊，不同用人方式教师管理配套政策笼统；二是身份制观念严重固化，教师日常管理活力偏弱；政府部门责任未夯实、部分教师管理主体模糊，管理理念落后；三是学前教育财政投入总量不足，相关政策不健全，未将公办园不同用人方式教师全部纳入财政保障；四是低生育率背景下在园幼儿数量呈下降趋势，阻碍师资合理管理。内部原因方面，一是园所缺乏清晰的战略规划，难对教师管理提供正确指引；二是园所高控高压型管理方式制约师资队伍管理的科学性；三是不同用人方式教师常态化管理存在缺陷，加剧园所统一管理难度。

最后，立足于理论基础与实证调研数据，本研究提出优化完善公办园教师管理的对策建议。基本原则上，一是坚持优质普惠、政府主导；二是坚持公平适当、按劳分配；三是坚持以人为主、科学管理。保障机制上，一是厘清幼儿园教师法律身份，完善不同用人方式教师管理配套政策；二是夯实政府各级部门教师管理的职责，树立“以人为本”管理理念；三是强化政府财政支持力度，健全经费保障政策，将不同用人方式教师管理纳入保障范围；四是开辟多元调配方式以统筹管理教师，破解幼儿数量减少之困局；五是助推园所建立整体的战略规划并营造良好的人文环境，推动师资管理内涵式发展；六是健全不同用人方式教师日常统一管理的高质量制度体系。

The construction of a high-quality education system has emerged as a critical imperative in the contemporary era. Positioned as the foundational phase of the national educational framework, preschool education must adhere to the objective of high-quality development to underpin the nation's aspirations for educational resource prowess. Against the backdrop of a nationwide drive to enhance the quality and accessibility of preschool education, the scale of teachers in public kindergartens (referred to as “public kindergartens”) in S Province has been steadily expanding. The faculty in public kindergartens, as pivotal agents for advancing the quality and efficacy of preschool education, necessitate judicious and systematic management to ensure the cultivation of a proficient teaching cohort and the effective operation of educational institutions. Nonetheless, prevailing issues persist in the management of teachers employing different employment modalities, and scholarly analyses scrutinizing the divergent management practices from the vantage point of employment methods remain conspicuously deficient. Hence, delving into the contemporary state and challenges of teacher management in public kindergartens employing distinct employment methods, elucidating their principal determinants, and proffering strategies to optimize such management in public kindergartens emerge as imperatives.

Employing the paradigms of strategic human resource management and comprehensive incentive theory, this study amalgamates literature review, interview, and questionnaire methodologies to comprehensively scrutinize the contemporary state and challenges of teacher management employing diverse employment methods in public kindergartens across S Province. Initially, it conducts a thorough review and analysis of policy documents and extant literature pertaining to teacher management employing diverse employment methods in public kindergartens in S Province. Subsequently, it engages in in-depth interviews with administrative officials in S Province, organizers or principals of public kindergartens, and teachers employing diverse employment methods therein, alongside consultations with experts and scholars. Additionally, questionnaires are disseminated among teachers employing diverse employment methods in public kindergartens in S Province to ascertain the contemporary status and challenges of teacher management, discern differences in management across the four categories of teachers, and elucidate the underlying rationales. Subsequent to data analysis, recommendations are delineated to fortify teacher management employing diverse employment methods in public kindergartens across S Province.

Firstly, despite the increasing improvement in teacher management in public kindergartens in S province, issues related to the management of teachers under various employment systems, including those with permanent posts, registered status, labor dispatch, and self-employed teachers, remain prominent and urgently require attention. In terms of admission management, on one hand, the scientific implementation of teacher admission management and the enforcement of admission criteria and standards for self-employed teachers are paramount. On the other hand, the majority of teachers enter contracts primarily through employment and labor agreements, yet the contractual nature of these four categories of teachers remains unregulated. Additionally, teacher contracts typically have a time limit, with the issue of time limits for dispatched and self-employed teachers being particularly salient. Regarding compensation management, teachers' salaries are relatively low and often do not align with their actual workload, especially for self-employed teachers. Furthermore, salary increments are based on specific schemes, and clarification of salary growth mechanisms for labor-dispatched and self-employed teachers is necessary. On the positive side, teachers generally enjoy favorable social security benefits, with self-employed teachers facing the greatest challenges in terms of housing provident fund coverage. Additionally, the payment of social security contributions is generally satisfactory, though there are disparities between teachers with permanent posts or registered status and other teachers. In terms of training management, while opportunities for teachers to participate in external training are gradually increasing, labor-dispatched and self-employed teachers often lack such opportunities. Moreover, high-level training opportunities are generally scarce, particularly for labor-dispatched and self-employed teachers. Promotion management faces challenges such as the lack of suitability in the promotion system, which makes it difficult for non-permanent teachers to obtain professional titles. Additionally, while teachers have opportunities for career advancement, the scope for upward mobility is narrow, and mid- to high-level positions tend to favor teachers with permanent posts. Exit management is also problematic, as the procedures for teacher departures are unclear, particularly for labor-dispatched and self-employed teachers. Additionally, most teachers resign voluntarily, and there are significant differences in exit methods between teachers under different employment systems.

Secondly, guided by theoretical frameworks, this study aims to analyze the reasons for issues in teacher management in public kindergartens from both external and internal perspectives. Externally, these reasons include the ambiguity of kindergarten teachers' legal status and the generality of supporting policies tailored to teachers with diverse employment modalities. The deeply entrenched identity-based mindset leads to a lack of vitality in routine teacher management practices. Additionally, the incomplete fulfillment of government responsibilities, the ambiguity of certain teacher management entities, and outdated management paradigms further complicate the issue. The inadequate financial investment in preschool education, coupled with incomplete policies, fails to comprehensively incorporate teachers with varying employment arrangements in public kindergartens under fiscal security measures. Moreover, the declining number of enrolled children in kindergartens against the backdrop of low fertility rates poses a challenge to the rational management of teaching staff. Internally, the lack of a well-defined strategic plan in kindergartens hampers the provision of accurate guidance for teacher management. The highly controlled and pressurized management style within kindergartens impedes the scientific nature of teacher management. Furthermore, deficiencies in the standardized management of teachers with varying employment modalities exacerbate the complexity of achieving unified management in kindergartens.

Finally, based on theoretical foundations and empirical research data, this study proposes countermeasures and suggestions to optimize and improve teacher management in public kindergartens. The fundamental principles include adhering to quality, inclusiveness, and government leadership; upholding fairness, adequacy, and distribution according to work; and emphasizing human-oriented and scientific management. In terms of safeguard mechanisms, it is crucial to clarify the legal status of kindergarten teachers and refine supporting policies tailored to teachers with diverse employment modalities. The government should solidify its responsibilities in teacher management at all levels and embrace a human-oriented management philosophy. Additionally, the government should strengthen financial support, improve funding policies, and strive to incorporate the management of teachers with different employment modalities into the scope of security measures. It is also essential to explore diverse allocation methods to manage teachers holistically and address the challenge of declining enrollment. Furthermore, kindergartens should establish overall strategic plans, create a favorable humanistic environment, and promote the connotative development of teacher management. Lastly, a high-quality system for the routine unified management of teachers with different employment modalities should be established and refined.