幼儿园教师队伍既是学前教育事业发展的核心内容，又是影响学前教育事业发展的关键要素，因此建设一支数量稳定、专业化程度高的幼儿园教师队伍是保障学前教育数量普及和质量提高的关键。我国农村地区处于学前教育发展的薄弱环节，长期以来对农村幼儿园教师在“准入”“留用”“退出”等环节缺乏科学、有效的监管和制度保障，使大量的农村幼儿园教师成为幼儿园的“临时工”和“廉价劳动力”，从而导致农村幼儿园教师在身份认可、工资福利、社会保障、培养培训等合法权益得不到保障。因此，完善农村幼儿园教师人事制度，进而建立农村幼儿园教师权益保障机制是促进农村幼儿园教师队伍建设乃至农村学前教育发展的关键。山东省作为农业人口大省，其在农村幼儿园教师人事制度及实施中面临的众多问题以及破解方式都极具典型性与代表性，以山东省为例对深化本研究具有重要意义。本研究综合采用文献法、访谈法分析、个案法，分析我国农村幼儿园教师人事制度及实施的现状与问题，探讨问题背后的原因，并从制度建设层面提出相应的对策建议。首先，本研究基于人力资源管理理论界定农村幼儿园教师人事制度的基本内涵，并运用福柯“话语”分析理论，确立了政策文本分析的方法论基础。基于此，本研究从农村幼儿园教师人事制度的内涵入手，基于历史发展阶段分析，以山东省为例，从“准入”“用人管理”“待遇”“激励”“退出”五个方面深入分析当前我国农村幼儿园教师人事制度及其实施的现状与问题。从制度而言，我国农村幼儿园教师“准入”环节制度要求明确，“用人管理”虽有涉及但过于笼统，农村地区幼儿园教师“待遇”被边缘化，“激励”缺乏明确制度设计，“退出”成为制度的难点。从制度的实施而言：我国农村幼儿园教师人事制度存在“入口”障碍，即执行难达“准入”标准与要求且制度尚不健全；“身份口”障碍，即用人管理极为混乱；“生存口”障碍，即农村地区幼儿园教师待遇仍得不到切实落实与保障；“楼梯口”障碍，即晋升渠道不畅通，激励制度尚未建立；“出口”障碍，即农村幼儿园教师退出机制不完善。其次，本研究在对现状及问题分析的基础上，对产生我国农村幼儿园教师人事制度及实施的两方面的问题进行了原因剖析。由于政府传统观念以及政策制定自身存在的众多不足，直接影响到人事制度的系统与有效。而政府管理体制存在缺陷，不同层级政府财政投入、分担机制不合理，横向配套制度如社会保障制度的不健全，以及政府施政行为的不当直接影响到人事制度实施的效果。最后，为更好的规范农村幼儿园教师人事管理，本研究采用个案分析的方法，对W市“四统一”等人事制度改革探索进行分析，为制度的构建提供思路与借鉴。在此基础上，从制度建设层面提出构建人事制度的基本思路，即理顺学前教育管理体制，明确各层级及各部门的政府职责；统筹农村幼儿园教师人事制度各环节，发挥制度的系统效能；“分类别”“分渠道”制定农村幼儿园教师人事制度。同时，针对不同类型农村幼儿园教师人事管理提出了具体的政策建议，以具体解决人事制度“准入”“用人管理”“待遇”“激励”“退出”存在的问题：对于编制内农村幼儿园教师，科学规范编制管理；对于非在编农村幼儿园教师，构建“人事代理”模式，探索出一套“能进能出”、“能上能下”的良性用人机制和退出机制；同时通过灵活农村幼儿园教师准入，构建非在编农村幼儿园教师激励晋升机制，以及建立信息登记制度尝试性破解幼儿园教师退出难题，从而完善人事制度的薄弱环节；并通过构建刚性督导体系保障农村幼儿园教师人事制度的实施。

Building up a stable professional and highly-qualified preschool teacher is the key to guarantee the quality of preschool education. In rural areas of China, the development of preschool education is weaknesses and the “access” “retained” “exit” and other aspects of preschool teachers’ personnel system is lack of scientific and effective regulatory and institutional support. Based on that, improving personnel system of rural preschool teachers and establishing a rights protection mechanism is the key to promote rural preschool teachers’ development. Based on the literature method, interviews and questionnaire method, this research analysis the problems and reasons deeply, and then put forth policy suggestions. Firstly, based on the human resource management theory and Foucault's “discourse " theory, this research analysis the current status of preschool teachers’ personnel system in rural area from five aspects:1."Entrance" obstacles which mean "access" policy requires a clear, but the implementation is difficult to reach the standard.2."Identity" disorder which means teacher’s management is not normative and policy lack of operability.3."Survival export” obstacles which mean the kindergarten teacher treatment become policy "focus", but the treatment of kindergarten teachers in rural areas are still not effectively implement and guarantee.4. "Stairs" obstacles which means rural kindergarten teachers "incentive, restraint mechanism" has become the policy and practice of the blind spot.5. "Export" obstacles which means exit policy of preschool teachers in rural become difficult spot and exit mechanism is not perfect.Secondly, this study constructs the analysis framework of reasons. Defects of government management system exist which means the government management of transverse, longitudinal responsibilities are not clear, and all levels of government financial input, sharing mechanism is not reasonable, which resulting in the teachers' personnel system cannot run smoothly. As well as the government's "anomie" behaviors and the horizontal supporting system is imperfect which obstacles the implementation of preschool teachers’ personnel system.Lastly, in order to standardize the preschool teachers’ personnel management, this study put forward the basic ideas of the construction of personnel system. Straighten out the preschool education management system, clear responsibilities at all levels of government and each department. Coordinate each link in the personnel system of rural preschool teachers and play an effectiveness system. Develop the rural preschool teachers' personnel system from different categories and channels. At the same time, this study put forwards suggestions based on different kinds of preschool teachers which include the personnel agency for temporary preschool teachers in rural areas.