从单向援助到协同发展:中国高校对口支援政策回顾与展望

From One-way Assistance to Coordinated Development:A Policy Review and Prospect of Partner Assistance of Chinese Colleges and Universities

高校对口支援是一项具有中国特色的高等教育制度,旨在缓和教育区域发展不平衡与不充分的现实矛盾。自西部大开发战略启动以来,我国高校对口支援政策已经实施20年。为考察高校对口支援政策演变历程及其特征,基于政策工具与政策内容二维分析框架,对21世纪以来的38份相关政策文件进行定性和定量分析。结果显示:(1)相关发文数量分布呈现周期性变化,高校对口支援政策重点逐渐转移,经历由“执行教育任务”到“提升西部高等教育质量”再到“塑造其服务区域经济社会发展的能力”的演变历程,呈现出从单向援助到协同发展的内在演变逻辑;(2)从政策工具使用看,高校对口支援政策工具类型日趋多元,权威型、符号与规劝型等政策工具使用比例较高,激励型、系统变革型等“造血”类政策工具使用却较少;(3)从支援内容看,相关政策集中体现在学校管理、师资建设两个维度,在学科建设、科学研究与国际交流等方面还有待深化;(4)从交叉分析看,高校对口支援注重宏观指导与精神激励,缺乏实质性的效果评估与必要的监督问责。基于此,研究认为:(1)强化激励型、系统变革型等“造血”类政策工具的使用效益,发挥政策工具多元化的组合效应;(2)结合支援高校与受援高校的优劣势,提升对口支援内容的精准性与均衡性,尤其要注重特色学科建设、优秀科研成果转化和国内与国际交流渠道拓展;(3)优化对口支援的长效规划和政策供给,促进对口支援政策可持续性和稳定性,实现由“自上而下”权威管控到“自下而上”主动落实的转变;(4)完善高校对口支援效果评估与问责机制,在提升政策制定与评估的科学性中实现支援高校与受援高校的合作共赢、协同发展。

The partner assistance of colleges and universities is regarded as a higher education system with Chinese characteristics, which aims to ease the imbalance and insufficiency of regional development of education. Since the launch of the western development strategy, the plan of partner assistance for the western region of China’s universities has been implemented for nearly 20 years. In order to investigate its policy evolution and characteristics, a qualitative and quantitative analysis was conducted on the 38 relevant policy documents since the 21st century based on the two-dimensional analysis framework of policy tools and content. The results show that: The number of relevant papers presented periodic changes, the focus of partner assistance gradually shifted, and the evolution process from “carrying out educational tasks” to “improving the quality of higher education in the west” to “shaping its ability to serve regional economic and social development” presented an internal evolution logic from one-way assistance to coordinated development;in terms of the use of tools, the types of policy tools to support western universities are becoming increasingly diversified, with a high proportion of authority, symbol and persuasion tools, but less “blood making” tools such as incentive and system reform tools;from the perspective of support content, relevant policies are mainly embodied in school management and teaching staff, but discipline construction, scientific research and international exchanges need to be deepened;from the perspective of cross analysis, partner assistance to western universities focuses on macro guidance and spiritual encouragement, lacking substantive effect evaluation and necessary supervision and accountability. Based on this, the research believes that: strengthen the use efficiency of “hematopoietic” tools such as incentives and system reform, and give play to the diversified combination effect of policy tool allocation;combining the advantages and disadvantages of supporting universities and recipient universities, improve the accuracy and balance of counterpart support content, especially pay attention to strengthening the construction of characteristic disciplines, transforming excellent scientific research achievements and expanding domestic and international communication channels;optimize the long-term planning and policy supply of counterpart support, promote the policy sustainability and stability of partner assistance, and realize the transformation from “top-down” authoritative control to “bottom-up” active implementation;improve the effectiveness evaluation and accountability mechanism of university partner assistance, and achieve win-win cooperation and coordinated development between supporting universities and recipient universities while improving the scientific nature of policy formulation and evaluation.