真实情境中教师的差异化行为:S县“联校走教”政策十年观察
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摘要
政策的有效实施是实现教育政策意义和价值的重要环节。在"以县为主"的基础教育管理体制下,教育政策的有效实施取决于一线教师的理性认知、真心参与和全力支持。基于湖北省S县"联校走教"政策历时10年的研究发现,各种正式与非正式制度的交织联结,构成了影响一线教师流动的真实制度情境和约束条件。作为理性的行动者,一线教师往往会基于自身所处情境解构教育政策并做出利益最大化的选择,以截然不同的身份参与"联校走教"政策实施。政策实施中教师承担责任的差异性导致"联校走教"政策目标发生偏移,众多公办教师成为政策的旁观者。在区域差异、城乡差异、校际差异巨大的背景下,捕捉一线教师如何"做政策"的信息至关重要。只有理解一线教师在特定情境中的真实需求与行为表达,方能理解教育政策实施过程的复杂性,从而为构建有效的教师激励机制,增进政策实施效果提供有价值的信息。
Under the county-based school management system, effective implementation of education policy depends on rational cognition, sincere participation and full support from front-line teachers. Based on the 10-year study of the "School Union and Mobile Teaching" policy of S County in Hubei Province, it's found that the intertwined connection between various formal and informal institutions constitutes a real institutional situation and constraints that affect the flow of front-line teachers. As rational actors, front-line teachers often deconstruct educational policies based on their own situations and make choices to maximize their interest, and participate in the implementation of the policy in a different identity. The differences in teachers' responsibility in policy implementation have led to shifted policy goals, and many public teachers have become bystanders of policies. Given regional differences, urban-rural differences, and inter-school differences, it is important to capture information on how teachers "do policy". Only by understanding the real needs and behavioral expressions of teachers in specific situations can we understand the complexity of the implementation process of educational policies, and thus provide valuable information for constructing effective teacher incentives and improving the effectiveness of policy implementation.
Under the county-based school management system, effective implementation of education policy depends on rational cognition, sincere participation and full support from front-line teachers. Based on the 10-year study of the "School Union and Mobile Teaching" policy of S County in Hubei Province, it's found that the intertwined connection between various formal and informal institutions constitutes a real institutional situation and constraints that affect the flow of front-line teachers. As rational actors, front-line teachers often deconstruct educational policies based on their own situations and make choices to maximize their interest, and participate in the implementation of the policy in a different identity. The differences in teachers' responsibility in policy implementation have led to shifted policy goals, and many public teachers have become bystanders of policies. Given regional differences, urban-rural differences, and inter-school differences, it is important to capture information on how teachers "do policy". Only by understanding the real needs and behavioral expressions of teachers in specific situations can we understand the complexity of the implementation process of educational policies, and thus provide valuable information for constructing effective teacher incentives and improving the effectiveness of policy implementation.
引文
蔡明兰.(2011).教师流动:问题与破解——基于安徽省城乡教师流动意愿的调查分析.教育研究,(02),92-97.
曾荣光.(2011).理解教育政策意义——质性取向在政策研究中的定位.北京大学教育评论,(01),152-192.
陈振华.(2015).中小学教师管理制度建设:问题与改进策略.教育研究,(09),99-103.
陈振明.(1998).科学化、现实性与跨学科研究——走向21世纪的中国政治学必须着重解决的三大问题.政治学研究,(01),20-22.
褚宏启.(2010).教育制度改革与城乡教育一体化——打破城乡教育二元结构的制度瓶颈.教育研究,(11),3-11.
丁煌.(2002).我国现阶段政策执行阻滞及其防治对策的制度分析.政治学研究,(01),28-39.
郝保伟.(2012).教师流动政策的合法性缺失及其重建.中国教育学刊,(09),5-8.
科尔巴奇.(2005).政策(张毅,韩志明译).长春:吉林人民出版社.
雷万鹏,张雪艳.(2012).农村小规模学校师资配置政策研究.教育研究与实验,(06),8-12.
李迎生,李泉然,袁小平.(2017).福利治理、政策执行与社会政策目标定位——基于N村低保的考察.社会学研究,(06),44-66.
刘复兴.(2002).教育政策活动中的价值问题.北京师范大学学报(人文社会科学版),(03),83-91
萨巴蒂尔.(2004).政策过程理论(彭宗超译).北京:生活·读书·新知三联书店.
史亚娟.(2014).中小学教师流动存在的问题及其改进对策——基于教师管理制度的视角.教育研究,(09),90-95.
王彦才.(2014).中小学教师流动:问题及对策——基于海南省中小学教师流动现状的调查分析.教师教育研究,(02),29-32.
邬志辉.(2012).城乡教育一体化:问题形态与制度突破.教育研究,(08),19-24.
徐勇.(2008) “政策下乡”及对乡土社会的政策整合. 当代世界与社会主义,(01),116-121.
Ball,S.J.,Hoskins,K.,Maguire,M.,& Braun,A.(2011).Policy actors:doing policy work in schools.Studies in the Cultural Politics of Education,32(4),625-639.
Braun,A.,Ball,S.J.,& Maguire,M.(2011).Policy enactments in school introduction:towards a toolbox for theory and research.Studies in the Cultural Politics of Education,32(4),581-583.
Coburn,C.(2005).Shaping teacher sensemaking:School leaders and the enactment of reading policy.Education Policy,19,476-509.
Deleon,Peter & Vobeck,Danielle M.(2007).The Policy Science at the Crossroad.F.Frank Fischer et al.(Eds).Handbook of Public Policy Analysis:Theory,Politics,and Methods.Boca Raton,FL:CRC Press Taylor and Francis Groups.
Habermas,Jurgen.(1988).On the logic of the Social Sciences.Cambridge,Mass:MIT Press.
Lipsky,M.(1980).Street-level Bureaucracy.New York:Russell Sage Foundation.
Ostrom,E.(2011).Background on the Institutional Analysis and Development Framework.The Policy Studies Journal,39(1),7-27.
Spillane,J.P.,Reiser,B.J.,& Reimer,T.(2002).Policy implementation and cognition:Reframing and refocusing implementation research.Review of Educational Research,72,387-431.
①所谓“联校走教”是指通过教师走教,以乡镇中心学校带动周边若干教学点联合发展。
②“联校网教”即利用信息技术向农村教学点辐射优质教育资源,城镇学校教师通过网络同步课堂或专递课堂等形式,对农村教学点学生实施教学。
③代课教师即临时聘用教师,本文为方便理解沿用代课教师的称谓。
④2012年湖北省政府出台了《关于创新农村中小学教师队伍建设机制的意见》:农村义务教育学校新进教师实行全省统招统派、经费省级负担、县级教育行政部门负责管理、农村学校使用的新机制,这部分新招募的教师被称为“省招教师”或“新机制教师”。
曾荣光.(2011).理解教育政策意义——质性取向在政策研究中的定位.北京大学教育评论,(01),152-192.
陈振华.(2015).中小学教师管理制度建设:问题与改进策略.教育研究,(09),99-103.
陈振明.(1998).科学化、现实性与跨学科研究——走向21世纪的中国政治学必须着重解决的三大问题.政治学研究,(01),20-22.
褚宏启.(2010).教育制度改革与城乡教育一体化——打破城乡教育二元结构的制度瓶颈.教育研究,(11),3-11.
丁煌.(2002).我国现阶段政策执行阻滞及其防治对策的制度分析.政治学研究,(01),28-39.
郝保伟.(2012).教师流动政策的合法性缺失及其重建.中国教育学刊,(09),5-8.
科尔巴奇.(2005).政策(张毅,韩志明译).长春:吉林人民出版社.
雷万鹏,张雪艳.(2012).农村小规模学校师资配置政策研究.教育研究与实验,(06),8-12.
李迎生,李泉然,袁小平.(2017).福利治理、政策执行与社会政策目标定位——基于N村低保的考察.社会学研究,(06),44-66.
刘复兴.(2002).教育政策活动中的价值问题.北京师范大学学报(人文社会科学版),(03),83-91
萨巴蒂尔.(2004).政策过程理论(彭宗超译).北京:生活·读书·新知三联书店.
史亚娟.(2014).中小学教师流动存在的问题及其改进对策——基于教师管理制度的视角.教育研究,(09),90-95.
王彦才.(2014).中小学教师流动:问题及对策——基于海南省中小学教师流动现状的调查分析.教师教育研究,(02),29-32.
邬志辉.(2012).城乡教育一体化:问题形态与制度突破.教育研究,(08),19-24.
徐勇.(2008) “政策下乡”及对乡土社会的政策整合. 当代世界与社会主义,(01),116-121.
Ball,S.J.,Hoskins,K.,Maguire,M.,& Braun,A.(2011).Policy actors:doing policy work in schools.Studies in the Cultural Politics of Education,32(4),625-639.
Braun,A.,Ball,S.J.,& Maguire,M.(2011).Policy enactments in school introduction:towards a toolbox for theory and research.Studies in the Cultural Politics of Education,32(4),581-583.
Coburn,C.(2005).Shaping teacher sensemaking:School leaders and the enactment of reading policy.Education Policy,19,476-509.
Deleon,Peter & Vobeck,Danielle M.(2007).The Policy Science at the Crossroad.F.Frank Fischer et al.(Eds).Handbook of Public Policy Analysis:Theory,Politics,and Methods.Boca Raton,FL:CRC Press Taylor and Francis Groups.
Habermas,Jurgen.(1988).On the logic of the Social Sciences.Cambridge,Mass:MIT Press.
Lipsky,M.(1980).Street-level Bureaucracy.New York:Russell Sage Foundation.
Ostrom,E.(2011).Background on the Institutional Analysis and Development Framework.The Policy Studies Journal,39(1),7-27.
Spillane,J.P.,Reiser,B.J.,& Reimer,T.(2002).Policy implementation and cognition:Reframing and refocusing implementation research.Review of Educational Research,72,387-431.
①所谓“联校走教”是指通过教师走教,以乡镇中心学校带动周边若干教学点联合发展。
②“联校网教”即利用信息技术向农村教学点辐射优质教育资源,城镇学校教师通过网络同步课堂或专递课堂等形式,对农村教学点学生实施教学。
③代课教师即临时聘用教师,本文为方便理解沿用代课教师的称谓。
④2012年湖北省政府出台了《关于创新农村中小学教师队伍建设机制的意见》:农村义务教育学校新进教师实行全省统招统派、经费省级负担、县级教育行政部门负责管理、农村学校使用的新机制,这部分新招募的教师被称为“省招教师”或“新机制教师”。