深水区教育改革背景下的民办教育顶层制度设计

Basic Institutional Arrangement for Chinese Non-government Education

《国家中长期教育改革和发展规划纲要(2010-2020年)》开启了新一轮我国教育领域的综合改革,教育改革逐步进入深水区。完善民办教育的顶层制度设计是破解当前民办教育发展难题不可回避的重大课题。民办教育的顶层制度设计之争始于20世纪90年代末期国家民办教育立法并延续至今。在《国家中长期教育改革和发展规划纲要(2010-2020年)》研究制定和贯彻落实过程中,民办教育的顶层制度如何设计,是目前尚无结论的话题。民办教育发展艰难的根本原因是"制度上的顶层设计不足和政策上的系统配套不够",实践已经表明,《中华人民共和国民办教育促进法》设计的"合理回报"也没有彻底解决民办教育顶层制度设计欠缺的问题。在民办教育的顶层制度设计中,是否取消"合理回报"的条款、是否全面实行营利性和非营利性分类管理两个问题本身是表面的现象,不是问题的本质。当前,关键要深入论证回答"应不应该和可不可以"让民办学校与公办学校在法人类型上"并轨"、允许社会力量以非捐赠性出资方式举办或参与举办非营利性学校、允许非营利性学校的举办者和出资人从办学结余中取得经济收益、明确划定营利性学校在各级各类教育中准入的边界、赋予民办学校更充分的办学自主权五个问题。目前重在界定营利性和非营利性民办学校分类标准、完善分类的配套扶持政策和管理办法,对现有民办学校不做强行要求站队,由民办学校自愿选择是否申请营利性或非营利性论证的办法,留有充足过渡期,更有利于改革推进和民办教育事业长远发展。

There appear two problems for the development of the non-governmental education in China：（i）whether to abandon the system of ＂reasonable return＂ and （ii）how to promote the system of classified management for non-profit and forprofit non-government schools,which are, however, not essence but symptoms. Instead, focus should be placed on the follow-ing five problems：whether the type of legal person for non-government schools and government schools should be unified; whether to allow social resources to be non-donation contributors for non-profit schools ; whether to allow the founders and contributors of the non-profit schools to obtain economic benefit; whether to define the exact criteria of running for-profit schools for education at different levels and of different types;and whether to give non-government schools more autonomy in the operation. At present, some measures must be taken,including a clear definition of the classification standards for non-profit and for-profit schools, perfection of the related supporting policies and regulations, and allowance for the non-govern- ment schools to choose voluntarily to be for-profit or non-profit ones. To give the non-government schools a sufficient transition time would be more substantial to promote the educational reforms and facilitate the development of the non-government education.