公职监护制度的落地难题与破解路径——以失能老年人为中心

The Implementation Difficulties and Solution Paths of the Public Guardianship System—Centered on Disabled Elderly People

摘要: 随着人口老龄化程度不断加深，失能、独居、无子女老年人的监护问题日益凸显。《民法典》第32条确立了公职监护制度，规定在没有依法具有监护资格的人时，由民政部门或村/居委会担任监护人。然而，这一制度在落地过程中面临启动程序不清、履职能力不足、责任机制缺失、监护监督不足等多重困境。本文以失能老年人为中心，考察公职监护的制度定位与实践运行，分析上海徐汇、静安、黄浦、闵行四区的探索经验，从启动、履职、监督、责任四个维度提出制度完善路径，以期推动公职监护从纸面走向实践，筑牢失能老年人权益保障的底线。

Abstract: With the deepening of population aging, the guardianship issues of disabled, solitary and childless elderly people have become increasingly prominent. Article 32 of the Civil Code establishes a public guardianship system, stipulating that when there is no person with legal guardianship qualifications, the civil affairs department or village/neighborhood committee shall act as the guardian. However, this system faces multiple difficulties in implementation, including unclear start-up procedures, insufficient performance capabilities, difficulties in property management, and the absence of a responsibility mechanism. This article takes disabled elderly people as the center to examine the institutional positioning and practical operation of public guardianship, analyzes the exploration experiences of Xuhui, Huangpu and Minhang districts in Shanghai, and proposes paths for institutional improvement from four dimensions: start-up, performance, supervision and responsibility, with the aim of promoting the transformation of public guardianship from paper to practice and strengthening the bottom line of rights protection for disabled elderly people.