“幼有所育”中政府普惠性投入的必然性——来自六省县级面板数据的历史证据
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摘要
为了探讨政府投入对学前教育供给特别是公办园供给的影响,本研究基于可得的2002～2006年山东、浙江、河南、湖南、贵州及甘肃6省370个县级历史面板数据进行实证分析,结果显示学前教育政府分担比例与公办园的在园幼儿规模增长率之间存在一种"右凸模型"现象:公办园的政府分担比例对公办园的在园幼儿规模增长率有负向影响,在其他影响因素相同的情况下,政府分担比例越大,对公办园在园幼儿规模增长率的负效应越大。由于政府与公办园是"圈内人"的关系,政府对公办园的投入是一种社会性交换,所以政府会优先投入公办园。与此同时,进入公办园的多是包括政府公务员在内的社会经济地位较高家庭的幼儿,这也使得公办园更可能追求以"示范园"为目标的高质量,而非扩大在园幼儿规模。在当前要求大力发展普惠性学前教育的政策导向下,地方政府不能再走鼓励和支持公办园建设与发展"示范园"的老路。不仅中央政府应着力引导学前教育普惠性投入方向,而且地方政府应增加公办园的城乡覆盖范围,逐步将公办园学位数供给纳入政府考核评价体系,并尝试创新学前教育投入机制,促进我国学前教育普惠、安全、优质发展。
In the new era,it is of great significance to promote the early childhood education(ECE)to be accessible,affordable,safe and of high quality to satisfy the people's urgent expectation in Childhood Education Sector. In 2003,the Ministry of Education issued a policy to increase the governmental investment in Demonstration Kindergartens. Both central government and local governments have begun to increase investment in preschool education since 2010,but many locally governmental spending in preschool education nowadays still focuses on Demonstration Kindergartens. To empirically explore the relationship between governmental investment and the growth of scale of public kindergartens,according to the availability of data,this paper examines the relation using panel data at county level from 370 counties in Shandong,Zhejiang,Henan,Hunan,Guizhou and Gansu provinces in 2002～2006. The results show that there is a negative correlation between spending in preschool education and the growth of enrollments of public kindergartens. Particularly,the greater the share,the greater the negative effect. This is also a case in counties where there were larger enrollment in public kindergartens,there was a greater negative effect.That is, under the existing government investment model of preschool education, the government 's increased investment in Demonstration Kindergartens does not contribute to expanding the enrollments of public kindergartens,and then this paper explains it under the theoretical analysis framework of "InsidersOutsiders". Therefore,in the context of the shortage of "education for all the children",the government should reform its traditional way of investment in ECE sector. This study has significant policy implications for governmental strategies regarding spending in preschools to achieve the goal of universalization in early childhood education in China.
In the new era,it is of great significance to promote the early childhood education(ECE)to be accessible,affordable,safe and of high quality to satisfy the people's urgent expectation in Childhood Education Sector. In 2003,the Ministry of Education issued a policy to increase the governmental investment in Demonstration Kindergartens. Both central government and local governments have begun to increase investment in preschool education since 2010,but many locally governmental spending in preschool education nowadays still focuses on Demonstration Kindergartens. To empirically explore the relationship between governmental investment and the growth of scale of public kindergartens,according to the availability of data,this paper examines the relation using panel data at county level from 370 counties in Shandong,Zhejiang,Henan,Hunan,Guizhou and Gansu provinces in 2002～2006. The results show that there is a negative correlation between spending in preschool education and the growth of enrollments of public kindergartens. Particularly,the greater the share,the greater the negative effect. This is also a case in counties where there were larger enrollment in public kindergartens,there was a greater negative effect.That is, under the existing government investment model of preschool education, the government 's increased investment in Demonstration Kindergartens does not contribute to expanding the enrollments of public kindergartens,and then this paper explains it under the theoretical analysis framework of "InsidersOutsiders". Therefore,in the context of the shortage of "education for all the children",the government should reform its traditional way of investment in ECE sector. This study has significant policy implications for governmental strategies regarding spending in preschools to achieve the goal of universalization in early childhood education in China.
引文
[1]习近平.决胜全面建成小康社会夺取新时代中国特色社会主义伟大胜利:在中国共产党第十九次全国代表大会上的报告[M].北京:人民出版社,2017:44-45.
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[12]郑楚楚,姜勇,王洁,等.公办学前教育资源区域配置的空间特征与均衡程度分析[J].学前教育研究,2017(2):17-26.
[13]刘鸿昌.学前教育公益性实现研究[D].成都:四川师范大学,2018.
[14]郭燕芬,柏维春.我国学前教育经费投入-产出效率分析及政策建议[J].学前教育研究,2017(2):3-16.
[15]刘积亮.地区学前教育发展水平决定因素及财政投入政策研究[J].现代教育管理,2018(07):38-43.
[16]张雪.1998~2008年中国学前教育财政状况及其对幼儿入园率的影响[Z].2011年教育经济学年会.
[17]宋映泉.不同类型幼儿园办学经费中地方政府分担比例及投入差异:基于3省25县的微观数据[J].教育发展研究,2011,31(17):15-23.
[18]徐雨虹.新制度经济学视角下的我国学前教育投资制度研究[D].上海:华东师范大学,2007.
[19]蔡迎旗,冯晓霞.论我国幼儿教育政策的公平取向及其实现[J].教育与经济,2004(2):33-36.
[20]桂磊.关于财政性学前教育经费在幼儿园之间的分配问题[J].学前教育研究,2004(3):48-50.
[21]HOTZ J.XIAO M.The impact of regulations on the supply and quality of care in child care markets[J].American Economic Review,2011,101(8):1775-1805.
[22]GRAEN G B,DUNNETTE M D.Role making processes within complex organizations[M].Handbook of industrial and organizational psychology,1976(28):1201-1245.
[23]SPARROWE R T,LIDEN R C.Process and structure in leader-member exchange[J].Academy of Management Review,1997,22(2):522-557.
[24]俞达,梁钧平.对领导者-成员交换理论(LMX)的重新检验:一个新的理论模型[J].经济科学,2002(1):5-18.
[25]李丽娥.促进我国学前教育发展的财政政策研究[J].经济研究导刊,2017(26):173-174.
[26]田志磊,张雪.中国学前教育财政投入的问题与改革[J].北京师范大学学报(社会科学版),2011(5):17-22.
[27]岳昌君.教育计量学[M].北京:北京大学出版社,2009:155-157.
[28]崔世泉,袁连生,田志磊.政府在学前教育发展中的作用:来自经济学理论和实践经验的分析[J].学前教育研究,2011(5):3-8.
[29]赵海利.构建财政性学前教育投入增长的保障机制:基于经济学需求与供给的视角[J].教育发展研究,2016,36(20):21-26+40.
[30]唐文雯.美国州立普惠性学前教育的发展与困境:基于佛罗里达州的个案分析[J].学前教育研究,2018(1):13-25.
[31]李祥云,徐晓.中国学前教育财政制度重构:从社会福利转向公共服务[J].中南财经政法大学学报,2015(4):75-79+87+159.
[2]朱宗顺.寻找教育公平的起点:从“重视学前教育”开始[J].当代社科视野,2008(1):17-20.
[3]BERLINSKI S,SCHADY N.The early years:child well-being and the role of public policy[R].New York,NY:MacMillan;Washington,DC:Inter-American Development Bank,2015.
[4]ENGLE P L,FERNALD L C,ALDERMAN H,et al.Strategies for reducing inequalities and improving developmental outcomes for young children in low-income and middle-income countries[J].Lancet,2011,378:1339-53.
[5]中共中央、国务院关于学前教育深化改革规范发展的若干意见[EB/OL].(2018-01-15)[2018-11-15].http://www.xinhuanet.com/politics/2018-11/15/c_1123720031.htm,.
[6]李宏堡,王海英.OECD国家学前教育成本分担现状及其启示[J].学前教育研究,2015(03):26-37.
[7]CARNOY M.教育经济学国际百科全书(第二版)[M].闵维方,等译.北京:高等教育出版社,2000:403-409.
[8]LEVIN,HENRY M.Equal educational opportunity and the distribution of educational expenditures[J].Education and Urban Society,1973,5(2):147-176.
[9]BENSON C.The economics of public education[M].Boston:Houghton Mifflin,1978:1984-1985.
[10]BENSON C.Definitions of equity in school finance in texas[J].New Jersey,and Kentucky Harv.J.Legislation,1991,28(2):401-422.
[11]宋映泉.民办学前教育规模占比的省际差异、政府财政投入与管制[J].北京大学教育评论,2012,10(02):97-119+190.
[12]郑楚楚,姜勇,王洁,等.公办学前教育资源区域配置的空间特征与均衡程度分析[J].学前教育研究,2017(2):17-26.
[13]刘鸿昌.学前教育公益性实现研究[D].成都:四川师范大学,2018.
[14]郭燕芬,柏维春.我国学前教育经费投入-产出效率分析及政策建议[J].学前教育研究,2017(2):3-16.
[15]刘积亮.地区学前教育发展水平决定因素及财政投入政策研究[J].现代教育管理,2018(07):38-43.
[16]张雪.1998~2008年中国学前教育财政状况及其对幼儿入园率的影响[Z].2011年教育经济学年会.
[17]宋映泉.不同类型幼儿园办学经费中地方政府分担比例及投入差异:基于3省25县的微观数据[J].教育发展研究,2011,31(17):15-23.
[18]徐雨虹.新制度经济学视角下的我国学前教育投资制度研究[D].上海:华东师范大学,2007.
[19]蔡迎旗,冯晓霞.论我国幼儿教育政策的公平取向及其实现[J].教育与经济,2004(2):33-36.
[20]桂磊.关于财政性学前教育经费在幼儿园之间的分配问题[J].学前教育研究,2004(3):48-50.
[21]HOTZ J.XIAO M.The impact of regulations on the supply and quality of care in child care markets[J].American Economic Review,2011,101(8):1775-1805.
[22]GRAEN G B,DUNNETTE M D.Role making processes within complex organizations[M].Handbook of industrial and organizational psychology,1976(28):1201-1245.
[23]SPARROWE R T,LIDEN R C.Process and structure in leader-member exchange[J].Academy of Management Review,1997,22(2):522-557.
[24]俞达,梁钧平.对领导者-成员交换理论(LMX)的重新检验:一个新的理论模型[J].经济科学,2002(1):5-18.
[25]李丽娥.促进我国学前教育发展的财政政策研究[J].经济研究导刊,2017(26):173-174.
[26]田志磊,张雪.中国学前教育财政投入的问题与改革[J].北京师范大学学报(社会科学版),2011(5):17-22.
[27]岳昌君.教育计量学[M].北京:北京大学出版社,2009:155-157.
[28]崔世泉,袁连生,田志磊.政府在学前教育发展中的作用:来自经济学理论和实践经验的分析[J].学前教育研究,2011(5):3-8.
[29]赵海利.构建财政性学前教育投入增长的保障机制:基于经济学需求与供给的视角[J].教育发展研究,2016,36(20):21-26+40.
[30]唐文雯.美国州立普惠性学前教育的发展与困境:基于佛罗里达州的个案分析[J].学前教育研究,2018(1):13-25.
[31]李祥云,徐晓.中国学前教育财政制度重构:从社会福利转向公共服务[J].中南财经政法大学学报,2015(4):75-79+87+159.