如何破解老年教育政策执行困境:基于政策网络理论视角

How to Solve the Dilemma of Elderly Education Policy Implementation:From the Perspective of Policy Network Theory

人口老龄化已成为我国社会经济发展的关键制约因素,发展老年教育是积极应对人口老龄化的重要举措。虽然我国已制定一系列老年教育政策,但政策执行的困境使得老年教育发展仍很缓慢。我国老年教育政策的执行呈现出明显网状结构,从政策网络理论入手,可为分析和破解其执行困境提供参考。从构成主体上看,我国老年教育政策网络主要包括以中央政府为主导的政策社群、以专家学者和行业组织为核心的专业网络、以地方政府及其主管部门为中心的府际网络、由资源提供者构成的生产者网络以及成员复杂松散的议题网络,各类网络间的互动影响着老年教育政策的执行成效。以此来看,我国老年教育政策执行困境体现为:生产者网络多样性缺失,老年教育资源配置效能较低;政策社群和府际网络权责不明确,协作与冲突并存;专业网络和议题网络话语权较弱,参与度不高。因此,可从以下几方面寻求破解之策:一是从老年教育供给侧改革入手,构建多元主体参与的协同治理机制;二是明确政策社群和府际网络的权责分工,加强对老年教育政策执行的监督力度;三是通过对多类型政策工具的组合运用,提升老年教育政策执行成效;四是畅通利益表达渠道,保障公众在老年教育政策执行中的参与权和话语权。

The aging of population has become a key constraint for Chinese social and economic development,and the development of elderly education is an important measure to actively respond to the challenges of aging population.Although our country has formulated a series of elderly education policy,the development of elderly education is still slow because of the implementation dilemma of the policy.The policy implementation of elderly education presents an obvious network structure.Starting from the policy network theory can provide a reference for analyzing and solving policy implementation dilemma.From the perspective of the main body,the elderly education policy network mainly includes the policy community dominated by the central government,the professional network centered by the experts,scholars and industry organizations,the inter-governmental network centered by the local government and its competent departments,the producer network composed of the resource providers and the complicated and loose issue network.The interaction among the various networks affects the effectiveness of the implementation of elderly education policy.From this point of view,the implementation dilemma of elderly education policy is reflected in the following three aspects:the lack of diversification of producer network and the inefficient allocation of elderly education resource;the unclear rights and responsibilities between policy community and inter-governmental network,and the coexistence of cooperation and conflict;the weak voice and low participation of professional network and issue network actors.Therefore,solutions can be sought from the following aspects.First,a cooperative governance mechanism involving multiple subjects through the supply-side reform of elderly education should be built.Second,the supervision of the implementation of policy should be strengthened by clarifying the division of power and responsibility between the policy community and the inter-governmental network.Third,the effectiveness of the implementation of the elderly education policy through the combined use of multiple types of policy tools should be improved.Fourth,the channels for expression of interests should be unblocked to ensure the public’s right to participate and speak in the implementation of the elderly education policy.