北欧国家终身学习迈向系统治理:路径、问题与思考

Lifelong Learning in Nordic Countries Towards Systematic Governance: Paths, Problems, and Reflections

终身学习作为一种复杂现象,与外界的因果关系变得日益复杂,这需要采用系统思维的方法将其作为一种跨领域的实体进行治理。近年来,北欧国家(主要指丹麦、挪威、瑞典、芬兰和冰岛)基于系统治理理念推进终身学习治理体系的改革,在终身学习的立法上更加关注整体价值,在终身学习的政策上注重连续性,在终身学习投入上开始实施基于现象的预算,在终身学习的管理上寻求战略合作,在终身学习的运行上设置国家层面的协调机构,从而提供了一个可参考的行动范式。诚然,北欧国家在终身学习系统治理方面迈出了重要的一步,但由于发展理念受新自由主义的影响,导致立法的价值导向、政策的延续性存在一定的狭隘性;成果导向上受绩效为本的限制,导致整合性财政干预方面存在障碍;管理行为受部门界限的制约,导致部门战略合作存在壁垒;协调运行受机制隐形的阻碍,导致协调效果有所削弱。因此,为了更好地推进终身学习向系统治理迈进,需要以系统思维为准则,构建治理的空间结构;基于终身学习权逻辑,明确政策法规的整体价值;基于整合的预算方法,提升经费的使用效能;以生态视角为切入点,推动部门的合作协调。

As a complex phenomenon, lifelong learning has become increasingly complex in its causal relationship with the outside world, which requires a systems thinking approach to be governed as a cross-domain entity. In recent years, the Nordic countries(mainly Denmark, Norway, Sweden, Finland and Iceland) have promoted the reform of the lifelong learning governance system based on the concept of system governance, paid more attention to the intrinsic value in the legislation of lifelong learning, and paid more attention to the continuity in the policy of lifelong learning, starting to implement phenomenon-based budgeting in lifelong learning investment, seeking strategic cooperation in lifelong learning management, and setting up national-level coordinating agencies in lifelong learning coordination, thus providing a reference action paradigm. It is true that the Nordic countries have taken an important step in system governance, but due to the influence of neoliberalism on development concepts, the value orientation of legislation and the continuity of policies are narrow to a certain extent;Restrictions lead to obstacles in integrated fiscal intervention;management behavior is constrained by departmental boundaries, resulting in barriers to departmental strategic cooperation;coordination is hindered by invisible mechanisms, resulting in a weakened coordination effect. Therefore, in order to better promote lifelong learning towards systematic governance, it is necessary to build a spatial structure of governance based on systematic thinking;to clarify the overall value of policies and regulations based on the logic of the right to lifelong learning;to improve the use of funds based on an integrated budget method Efficiency;take the ecological perspective as the starting point to promote the cooperation and coordination of departments.