义务教育师资均衡配置政策工具的演进历程与主要特征

Policy Tools for the Balanced Allocation of Compulsory Education Teachers:Evolution and Features

随着我国义务教育从初步均衡到基本均衡、再到优质均衡的有序推进,师资均衡作为义务教育均衡发展的关键不断地调适着其目标。作为连接政策目标与结果的桥梁,义务教育师资均衡配置政策工具随着不均衡问题的改变、目标的变化、效果的评估等不断调整着其优势选择,是多种特定因素共同作用的结果。总体上,义务教育师资均衡配置政策工具遵循着“创造性的渐进主义”,历经了三个发展阶段,每个阶段都有其优势组合的工具选择以解决相应的师资不均衡问题。第一个阶段,以命令工具与能力建设工具为主初步确立政策工具体系,解决师资存量不均衡问题;第二个阶段,以命令工具与权威重组工具为主,攻坚师资增量不均衡问题;第三个阶段,以命令工具与报酬工具为主,巩固和提升城乡师资一体化发展的效果。义务教育师资均衡配置政策工具在演进中呈现系列鲜明的特征:政策“工具箱”中的命令工具强势主导;双向促进的工具组合策略;政策工具以权威和财政为支撑,且以能力建设工具贯穿始终;在坚守与创新的渐进式发展中,彰显政策工具选择的中国思路与中国方案。

With China’s compulsory education advancing from initial balance to basic balance and then to high-quality balance,the balance of the teaching force has become the key to the balanced development of compulsory education,and has been constantly adjusting its goals. As a bridge linking policy objectives and outcomes,the policy tools for the balanced allocation of compulsory education teachers unceasingly adjusted their advantages,with the change of the imbalanced teacher allocation and the objectives,and the evaluation of the effect of the policy tools for teacher allocation;this reveals the combination of various factors. On the whole,the policy tools,following the principle of "creative incrementalism," experienced three stages,each stage having its unique policy tools selected to deal with the imbalanced teaching force. In the first stage,oriented to mandatory tools and tools for capacity building,the policy tools dealt with the imbalance of the teaching force stored;in the second stage,oriented to mandatory tools and tools for system rebuilding,they tackled the imbalance of the increased teaching force;in the third stage,oriented to mandatory tools and salary-based tools,they aimed to improve the balance between urban and rural teachers and their integration. In their evolution,the policy tools presented distinctive features:The mandatory tools in the policy "toolbox" were dominant;the policy tools were combined and bi-directional;supported by authority and finance,the policy tools were oriented to capacity building;in their inheritance-based,innovative and gradual development,the policy tools highlighted China’s wisdom and planning.