惠农义务教育政策执行中的“空转”现象与矫治——城镇化进程视野下的分析

Phenomenon and Correction of the“Idling”of the Implementation of Compulsory Education Policy to Benefit Farmers:An Analysis from the Perspective of the Urbanization Process

作为推进城乡教育公平的关键,惠农义务教育政策已经实施多年,但城镇化的快速发展引致流动随迁子女和留守儿童现象并存。原有的惠农义务教育政策陷入了执行中的“空转”困境,具体表现在:一些施惠措施的目标精准性和时代适应性不足、城市学校义务教育资源难以均衡惠及流动人口、留守儿童义务教育质弱量缺的困局尚未扭转。基于政策执行过程分析框架,从政策执行的视角发现:公共服务消极供给、顶层设计不足、流入地财政压力过大、农民工参与空间与能力有限是造成惠农义务教育政策“空转”现象的主要原因。基于城镇化进程提出四个矫治路径,即:推进更高质量的城镇化、让农民有更多机会进入公共决策体系、建立完善的经费保障机制和消除社会歧视,以期提高惠农义务教育政策执行的有效性。

As the key to promote urban and rural education equity,compulsory education policy to benefit farmers has been implemented for many years.However,with the rapid development of urbanization,there are problems about migrant children and lift-behind children.This policy has fallen into the dilemma of implemen⁃tation“idling”,which is specifically manifested in the following aspects:the lack of goal precision and times adaptability in some preferential measures,the difficulty in equitably benefiting the floating population with compulsory education resources in urban schools,and the unsolved dilemma of weak quality and insufficient quantity of compulsory education for left-behind children.On the basis of The Smith Policy-Implementing-Pro⁃cess Framework and from the perspective of policy implementation,it is found that the negative supply of public services,the lack of top-level design,the excessive financial pressure on destination areas,and the insufficient collective action capacity of migrant workers are the main reasons for the“idling”of the implementation of this policy.Accordingly,four corrective approaches on the basis of the urbanization process are proposed:promoting higher quality urbanization,allowing farmers to have more opportunity to participate in the public decisionmaking system,establishing a sound funding guarantee mechanism,and eliminating social discrimination,with the aim of improving the effectiveness of the implementation of compulsory education policy to benefit farmers.