20世纪80年代以来英国高等教育治理研究
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摘要
英国高等教育治理是英国高等教育现代化的重要内容,它的实质是全球现代化背景下英国政府高等教育治理能力的现代化。英国是率先进行治理改革的国家,也是率先开展高等教育治理的国家。20世纪80年代开始,英国在公共部门中开展新公共管理运动,引入高等教育治理。英国高等教育市场化是高等教育治理的重要举措之一,政府在高等教育部门中引入市场机制,构建了高等教育市场化框架,导致了高等教育经费来源结构的变革。高等教育市场化、高等教育大众化以及政府规制的加强改变了学术自由和大学自治的境遇,在传统的大学与国家关系之间增添了新的市场维度,使学术寡头的权力向中央政府及中介组织、向大学法人层次、向消费者转移,重塑了大学与国家的关系。治理中蕴含的新管理主义理念推动了英国大学内部治理方式的改革和治理结构的完善。以高等教育资助委员会为首的高等教育中介组织体系的形成,构建了高等教育监管机制,促进了社会参与高等教育治理,在大学与国家间建立了缓冲机制。英国较强的社会参与传统,推动了英国高等教育政策网络的形成,非政府力量影响了高等教育政策的发展。
经过三十余年的建设和发展,英国高等教育治理取得了丰富的经验和公认的成功。通过权力关系的调整和资源流动机制的重建,英国建立了政府掌舵、市场运行、社会参与的高等教育治理框架：政府决定高等教育治理路径,设定高等教育发展框架；市场机制激发高等教育活力,改变大学运行规则；高等教育中介组织体系作为政府代理及其与大学的缓冲,非政府力量作为政策行动者参与政策网络协调,推动社会参与治理。英国高等教育治理的经验主要有,政府重视社会参与治理并加强掌舵；重视市场作用,重新组合政府—市场—社会三种力量；尊重学术自由和大学自治,在大学与国家之间构建缓冲机制。
结合我国实际情况,可以从以下几个方面借鉴英国高等教育治理经验。首先,建立中介组织体系,缓冲政府与大学关系；第二,积极运用市场机制,调动大学的企业家精神；第三,完善大学内部治理结构,平衡行政权力与学术权力；第四,综合运用多种治理手段和治理工具,兼顾垂直治理和水平治理；第五,大力推动信息技术发展,建立完备的信息公开制度。
The governance of UK higher education is an important part of the modernization of the UK higher education. The essence of the UK higher education governance is the modernization of governance capacity of the British government in the background of global modernization. The UK is the first country to carry out governance reform and higher education governance in the world. In the1980's, the UK launched the New Public Management movement in the public sector, and carried out higher education governance. The higher education marketization is one of the important measures of higher education governance, government introduced the market mechanism in higher education department and developed the marketization framework, leading to the financial source structure transformation of higher education. The Marketization of higher education, the popularization of higher education and the strengthening of the government regulation changed the situation of academic freedom and university autonomy, added new market dimensions in the traditional relationship between university and the nation, the power of academic community transferred to the central government and intermediary organizations, corporate governance body, consumers, reshaping the relationship between the university and the nation. New managerialism impluses the change of governance model in British university and the perfection of the governance structure. Headed by the Higher Education Funding Council, higher education intermediary organization system constructed the higher education supervision mechanism, setted up a buffer mechanism between university and the nation, promoting the social participation in higher education governance. Government and non government actors interacts in policy networks of UK higher education governance.
After more than30years of construction and development, the governance of UK higher education has gained rich experience and success. Through the adjustment of the power relations and the flow of resourse, the government steers, market operations, society participates consist of higher education governance framework:government decides the way of higher education governance, sets the development framework of higher education; the market mechanism motives the higher education, changes the operation rules of university; Higher education intermediary organization system are government's agency and the buffer with university, as policy actors non-governmental forces involved in network interaction, promoting social participation in higher education governance. The main experience of UK higher education governance are:The government strengthens governance capacity and attaches great importance to the social participation in governance; Pays attention to market function, recombining of government, society and market; respects academic freedom and university autonomy, builds the buffer mechanism between university and the nation.
Considering the actual situation in our country, Some suggestions are made with reference to UK higher education governance experiences:first of all, establishes the mediating organization system to buffer relationship of university and the government; second, actively promotes the marketization of higher education, arouses the entrepreneurial spirit of university; third, perfects the university governance structure, balances the administrative power and academic power; Fourth, employs various governance means and tools, balancing vertical and horizontal governance; Fifth, strives to develop information technology, perfects information disclosure system.
经过三十余年的建设和发展,英国高等教育治理取得了丰富的经验和公认的成功。通过权力关系的调整和资源流动机制的重建,英国建立了政府掌舵、市场运行、社会参与的高等教育治理框架：政府决定高等教育治理路径,设定高等教育发展框架；市场机制激发高等教育活力,改变大学运行规则；高等教育中介组织体系作为政府代理及其与大学的缓冲,非政府力量作为政策行动者参与政策网络协调,推动社会参与治理。英国高等教育治理的经验主要有,政府重视社会参与治理并加强掌舵；重视市场作用,重新组合政府—市场—社会三种力量；尊重学术自由和大学自治,在大学与国家之间构建缓冲机制。
结合我国实际情况,可以从以下几个方面借鉴英国高等教育治理经验。首先,建立中介组织体系,缓冲政府与大学关系；第二,积极运用市场机制,调动大学的企业家精神；第三,完善大学内部治理结构,平衡行政权力与学术权力；第四,综合运用多种治理手段和治理工具,兼顾垂直治理和水平治理；第五,大力推动信息技术发展,建立完备的信息公开制度。
The governance of UK higher education is an important part of the modernization of the UK higher education. The essence of the UK higher education governance is the modernization of governance capacity of the British government in the background of global modernization. The UK is the first country to carry out governance reform and higher education governance in the world. In the1980's, the UK launched the New Public Management movement in the public sector, and carried out higher education governance. The higher education marketization is one of the important measures of higher education governance, government introduced the market mechanism in higher education department and developed the marketization framework, leading to the financial source structure transformation of higher education. The Marketization of higher education, the popularization of higher education and the strengthening of the government regulation changed the situation of academic freedom and university autonomy, added new market dimensions in the traditional relationship between university and the nation, the power of academic community transferred to the central government and intermediary organizations, corporate governance body, consumers, reshaping the relationship between the university and the nation. New managerialism impluses the change of governance model in British university and the perfection of the governance structure. Headed by the Higher Education Funding Council, higher education intermediary organization system constructed the higher education supervision mechanism, setted up a buffer mechanism between university and the nation, promoting the social participation in higher education governance. Government and non government actors interacts in policy networks of UK higher education governance.
After more than30years of construction and development, the governance of UK higher education has gained rich experience and success. Through the adjustment of the power relations and the flow of resourse, the government steers, market operations, society participates consist of higher education governance framework:government decides the way of higher education governance, sets the development framework of higher education; the market mechanism motives the higher education, changes the operation rules of university; Higher education intermediary organization system are government's agency and the buffer with university, as policy actors non-governmental forces involved in network interaction, promoting social participation in higher education governance. The main experience of UK higher education governance are:The government strengthens governance capacity and attaches great importance to the social participation in governance; Pays attention to market function, recombining of government, society and market; respects academic freedom and university autonomy, builds the buffer mechanism between university and the nation.
Considering the actual situation in our country, Some suggestions are made with reference to UK higher education governance experiences:first of all, establishes the mediating organization system to buffer relationship of university and the government; second, actively promotes the marketization of higher education, arouses the entrepreneurial spirit of university; third, perfects the university governance structure, balances the administrative power and academic power; Fourth, employs various governance means and tools, balancing vertical and horizontal governance; Fifth, strives to develop information technology, perfects information disclosure system.
引文
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② 白旭.英国大学学费2012年大幅上涨,申请人数下降8.7%[N].http://news.sohu.com/20120131/n333297822.shtml,2012-01-31.
③ HESA. Publications and products[EB/OL]. http://www.hesa.ac.uk/index.php?option=com_pubs&task=show_pub_detail&pubid=1719&Itemid=286.
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① Richard Lewis. External examiner system in the UK:new fresh challenges to an old system[A]. David D. Dill, Maaria Beerkens. eds. Public policy for academic quality[C]. Dordrech:Springer.2010:24.
② OECD. Tertiary education for the knowledge society, thematic review of tertiary education:synthesis report[R]. 2008, Voll:76.
① OECD. Tertiary education for the knowledge society, thematic review of tertiary education:synthesis report[R]. 2008, Voll:207,214.
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③ HEFCE. Leadership, Governance and Management Fund:End of funding period and evaluation [EB/OL]. http://www.hefce.ac.uk/pubs/year/2010/c1132010/name,69046, en.html.
④ HEFCE. Allocation of funding for shared service activities in 2010-11 through the University Modernisation Fund[EB/OL]. http://www.hefce.ac.uk/pubs/year/2010/c1072010/name,62745, en.html.
① HEFCE. Allocation of funding for additional new entrants and efficiency activities in 2010-11 through the University Modernisation Fund[EB/OL]. http://www.hefce.ac.uk/pubs/year/2010/c1082010/name,62746, en.html.
② JISC.[EB/OL]. http://www.jisc.ac.uk/aboutus.aspx.
③ Gareth Williams. The higher education market in the United Kingdom[A]. Pedro Teixeira, Ben B. Jongblocd. David D. Dill. eds. Markets in Higher Education:Rhetoric Or Reality? [C]. Kluwer Academic Publisher,2006: 211.
① 赫尔穆特·沃尔曼.英德制度发展比较：持续的差异或发展中的趋同[A].赫尔穆特·沃尔曼,埃克哈特·施罗德编.比较英德公共部门改革[C].北京大学出版社,2004：7.
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③ Martin Trow. Decline of diversity, autonomy, and trust in British education[J]. Transaction Social Science and Modern Society,2006, Vo143, No.6:310.
① Gareth Williams. The higher education market in the United Kingdom[A]. Pedro Teixeira, Ben B. Jongbloed, David D. Dill. eds. Markets in higher education:rhetoric or reality? [C]. Kluwer Academic Publisher,2006:242.
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① 克拉克·克尔.高等教育不能回避历史[M].浙江教育出版社,2003：128.
② 注：由于条件所限,目前只能获取到20世纪90年代以后英国高等教育经费来源的相关资料。20世纪90年代后期英国本科生学费改革政策深化了英国高等教育市场化,因而对20世纪90年代起英国高等教育经费资料的分析应当能够反映英国高等教育市场化对高等教育经费来源结构的影响。
③ 注：表2.1资料来源：矢野真和著,张晓鹏译.高等教育的经济分析与政策[M].北京大学出版社,2006：229.
① Ferlie E. and Andresani G. United kingdom from bureau professionalism to new public management[A]. Paradeise C. et al. eds. University governance[C]. Dordrech:Springer,2009:185.
① 注：图2.1根据表2.1制成。Ig为二者关系政府主导型,Ⅲg和Ⅲm分别为四者关系政府主导型和市场主导型,伴随学费水平的快速提高,英国高等教育资金筹措日益趋向市场主导型。
② OECD. Tertiary education for the knowledge society, thematic review of tertiary education:synthesis report[R]. 2008, Voll:165
③ OECD. Tertiary education for the knowledge society, thematic review of tertiary education:synthesis report[R]. 2008, Voll:152-155
① 注：图2.2依据高等教育统计局网站资料整理而成,资料来源：http://www.hesa.ac. uk/component/option,com_datatables/Itemid,121/task,show_category/catdex,1/.
① 注：图2.3依据高等教育统计局网站资料整理而成,资料来源：http://www.hesa.ac.uk/component/option,com_datatables/Itemid,121/task,show_category/catdex,1/.
② HESA. View statistics online[EB/OL]. http://www.hesa.ac.uk/component/option,com_datatables/Itemid,121/task,show_category/catdex,l/
① 金融危机使英国大学捐助基金损失至少2.5亿英镑[J].世界教育信息,2009(1)
② 注：图2.4根据高等教育统计局网站资料整理而成,资料来源：http://www.hesa.ac. uk/component/option,com_datatables/Itemid,121/task,show_category/catdex,1/
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② 注：图2.5根据卡迪夫大学网站资料整理而成,资料来源：http://www.cardiff.ac.uk/fince/otherservices/index.html
① 注：图2.6根据卡迪夫大学网站资料整理而成,资料来源：http://www.cardiff.ac.uk/fince/otherservices/index.html
② 注：图2.7根据卡迪夫大学网站资料整理而成,资料来源：http://www.cardiff.ac.uk/fince/otherservices/index.html
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③ 注：表4.1根据伦敦大学教育学院各年度财务报表整理而成,资料来源：http://www.ioe.ac.uk/about/policiesProcedures/35429.html.
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② Ted Tapper.The governance of British higher education[M]. Dordrech:Springer,2007:34.
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② Ted Tapper. The governance of British higher education[M]. Dordrech:Springer,2007:41-42.
① 注：图5.1根据英格兰高等教育资助委员会网站资料整理而成。资料来源：http://www.hefce.ac.uk/about/intro/wip/rpg/of/.
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① Ted Tapper. The governance of British higher education[M]. Dordrech:Springer,2007:130-131.
② Ted Tapper. The governance of British higher education[M]. Dordrech:Springer,2007:132.
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② Ted Tapper. The governance of British higher education[M]. Dordrech:Springer,2007:133.
③ Ted Tapper. The governance of British higher education[M]. Dordrech:Springer,2007:134-136.
④ 注：图6.1根据学费政策沿革过程整理而成.
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① 注：图6.2根据高等教育质量保障政策沿革过程整理而成。
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③ Martin Trow. Decline of diversity, autonomy, and trust in British education[J]. Transaction Social Science and Modern Society,2006, Vo143, No.6:310.
① Gareth Williams. The higher education market in the United Kingdom[A]. Pedro Teixeira, Ben B. Jongbloed, David D. Dill. eds. Markets in higher education:rhetoric or reality? [C]. Kluwer Academic Publisher,2006:242.
② Carlo Salerno. A service enterprise:the market vision[A]. P. Maassen and J. P. Olsen. eds. University dynamics and European integration[C]. Springer,2007:119.
① 克拉克·克尔.高等教育不能回避历史[M].浙江教育出版社,2003：128.
② 注：由于条件所限,目前只能获取到20世纪90年代以后英国高等教育经费来源的相关资料。20世纪90年代后期英国本科生学费改革政策深化了英国高等教育市场化,因而对20世纪90年代起英国高等教育经费资料的分析应当能够反映英国高等教育市场化对高等教育经费来源结构的影响。
③ 注：表2.1资料来源：矢野真和著,张晓鹏译.高等教育的经济分析与政策[M].北京大学出版社,2006：229.
① Ferlie E. and Andresani G. United kingdom from bureau professionalism to new public management[A]. Paradeise C. et al. eds. University governance[C]. Dordrech:Springer,2009:185.
① 注：图2.1根据表2.1制成。Ig为二者关系政府主导型,Ⅲg和Ⅲm分别为四者关系政府主导型和市场主导型,伴随学费水平的快速提高,英国高等教育资金筹措日益趋向市场主导型。
② OECD. Tertiary education for the knowledge society, thematic review of tertiary education:synthesis report[R]. 2008, Voll:165
③ OECD. Tertiary education for the knowledge society, thematic review of tertiary education:synthesis report[R]. 2008, Voll:152-155
① 注：图2.2依据高等教育统计局网站资料整理而成,资料来源：http://www.hesa.ac. uk/component/option,com_datatables/Itemid,121/task,show_category/catdex,1/.
① 注：图2.3依据高等教育统计局网站资料整理而成,资料来源：http://www.hesa.ac.uk/component/option,com_datatables/Itemid,121/task,show_category/catdex,1/.
② HESA. View statistics online[EB/OL]. http://www.hesa.ac.uk/component/option,com_datatables/Itemid,121/task,show_category/catdex,l/
① 金融危机使英国大学捐助基金损失至少2.5亿英镑[J].世界教育信息,2009(1)
② 注：图2.4根据高等教育统计局网站资料整理而成,资料来源：http://www.hesa.ac. uk/component/option,com_datatables/Itemid,121/task,show_category/catdex,1/
③ HESA. View statistics online[EB/OL]. http://www.hesa.ac.uk/component/option,com datatables/Itemid,121/task,show category/catdex,1/
④ Peter Maassen. The modernization of European higher education[A]. Amaral A. et al. eds. From governance to identity[Cl. Springer Science+Business Media B.V.,2008:104.
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① Cardiff University. Other services[EB/OL]. http://www.cardiff.ac.uk/fince/otherservices/index.html.
② 注：图2.5根据卡迪夫大学网站资料整理而成,资料来源：http://www.cardiff.ac.uk/fince/otherservices/index.html
① 注：图2.6根据卡迪夫大学网站资料整理而成,资料来源：http://www.cardiff.ac.uk/fince/otherservices/index.html
② 注：图2.7根据卡迪夫大学网站资料整理而成,资料来源：http://www.cardiff.ac.uk/fince/otherservices/index.html
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③ Ted Tapper. The governance of British higher education[M]. Dordrech:Springer,2007:134-136.
④ 注：图6.1根据学费政策沿革过程整理而成.
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① 注：图6.2根据高等教育质量保障政策沿革过程整理而成。
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