改革开放40年我国教师政策的变迁历程、主要特征与发展前瞻——基于政策工具理论视角的文本计量研究
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摘要
改革开放以来,我国国家层面出台351件教师政策,初步形成促进教师队伍建设的政策体系。从政策工具理论的分析视角出发,采用文本计量的研究方法,发现改革开放40年的教师政策变迁经历了5个阶段,即1978-1985年的恢复调整阶段,政策供给主题是建章立制;1986-1992年的厚植基础阶段,主题是确保教师胜任;1993-2011年的内涵建设阶段,主题是质量提升;2012-2017年的全面提升阶段,主题是体系构建;2018年以后,教师政策发展进入新时代。政策变迁的过程中,政策体系趋于完备,初步形成促进教师队伍建设的制度基础设施;发文主体层级和政策的权威性不断增强;发文主体日趋多元,政策协同性不断增强;教师质量成为愈发重要的政策议题;命令性政策工具的使用存在过溢的倾向。政策变迁的未来发展表现出四种趋势:一是继续深化体制机制改革,破解教师队伍建设的深层制约;二是加强待遇保障、教师权利方面的政策供给;三是教师政策执行有更强的组织保障;四是进一步确立教师优先发展的战略地位。
Since the Reform and Opening-up, China has introduced 351 teacher policies at the national level, and basically formed a policy system to promote the construction of the teachers team. From the perspective of policy tools and using the method of textual measurement, this paper found that the transformation process of China's teacher policy in the 40 years of Reform and Opening-up can be divided into five stages: the recovery adjustment stage from 1978 to 1985, when the policy supply theme is established; the foundation strengthen stage from 1986 to 1992, with a theme of ensuring the competence of teachers; the connotation construction stage from 1993 to 2011, with a theme of quality improvement; the comprehensive improvement stage from 2012 to 2017, with a theme of system construction; and the stage after 2018, when teachers policy development enters a new era. In the process of policy change, the policy system has become more complete, and the institutional infrastructure to promote the construction of teaching staff has been basically formed; the authoritative level of the issuing body of the policies has been continuously enhanced; the issuing body of the policies has become more diversified, and the policy synergy has been continuously enhanced; the quality of teachers has become more and more important policy issues; and mandatory policy tools tends to be overused. The future development of policy changes shows four trends: to continue to deepen the reform of the system and mechanism in order to break the deep constraints; to strengthen the policy supply to improve teachers' salary and compensation and protect teachers' right; to strengthen the organizational implementation of these policies; and to reinforce the strategic position of the prioritized teachers' development.
Since the Reform and Opening-up, China has introduced 351 teacher policies at the national level, and basically formed a policy system to promote the construction of the teachers team. From the perspective of policy tools and using the method of textual measurement, this paper found that the transformation process of China's teacher policy in the 40 years of Reform and Opening-up can be divided into five stages: the recovery adjustment stage from 1978 to 1985, when the policy supply theme is established; the foundation strengthen stage from 1986 to 1992, with a theme of ensuring the competence of teachers; the connotation construction stage from 1993 to 2011, with a theme of quality improvement; the comprehensive improvement stage from 2012 to 2017, with a theme of system construction; and the stage after 2018, when teachers policy development enters a new era. In the process of policy change, the policy system has become more complete, and the institutional infrastructure to promote the construction of teaching staff has been basically formed; the authoritative level of the issuing body of the policies has been continuously enhanced; the issuing body of the policies has become more diversified, and the policy synergy has been continuously enhanced; the quality of teachers has become more and more important policy issues; and mandatory policy tools tends to be overused. The future development of policy changes shows four trends: to continue to deepen the reform of the system and mechanism in order to break the deep constraints; to strengthen the policy supply to improve teachers' salary and compensation and protect teachers' right; to strengthen the organizational implementation of these policies; and to reinforce the strategic position of the prioritized teachers' development.
引文
①习近平.坚持中国特色社会主义教育发展道路培养德智体美劳全面发展的社会主义建设者和接班人——在全国教育大会上的讲话[N].人民日报,2018-09-11(01).
(1)该数据库由华东师范大学国家教育宏观政策研究院建设,搜集了改革开放以来国家和省级层面与教育有关的法律、公报、规划、措施、办法、条例、标准、政府公开出版物等文献,是服务教育政策研究和教育决策的基础性数据库。
(2)李廷洲等.我国中小学教师职称改革:发展历程、关键问题与政策建议[J].中国教育学刊,2017,(12):66-72.
(3)黄萃等.政策工具视角的中国风能政策文本量化研究[J].科学学研究,2011,(6):876-882.
(4)吕武.我国当前学前教育政策工具选择偏向及其影响[J].教育科学,2016,(2):77-81.
(5)McDonnell L M, Elmore R F., “Getting the Gob Done: Alternative Policy Instruments,” Educational Evaluation and Policy Analysis 9, no. 2(1987): 133-152.
(6)李新翠.世界银行教师政策框架述评—基于“教育结果系统评估与基准测试”项目的教师政策框架[J].比较教育研究,2014,(10):85-90.
(7)Vegas E. et al., What Matters Most in Teacher Policies? A Framework for Building a More Effective Teaching Profession. SABER Report(Washington, DC.: Human Development Network, World Bank, 2012),1.
(8)李廷洲.教育事业发展进入重视“软件”时代[N].中国教育报,2018-2-23(03).
(9)李廷洲等.“十二五”期间我国教师政策计量分析与前瞻——基于政策工具视角的文本计量研究[J].中国教育学刊, 2016,(9):36-41.
(10)李廷洲等.中小学教职工编制的政策分析与路径探析[J].教育研究,2016, (2):63-69.
(11)李廷洲等.中小学教师职称改革成效如何——基于多元评估理论视角的政策评估研究[J].教育发展研究,2018,(9):17-23.
(12)李廷洲.新时代教师队伍建设必须加强党的领导[N].中国教育报,2018-8-17(02).
(13)郅庭瑾,吴晶.教育优先发展的三个关键指标[N].光明日报,2018-10-16(16).
(14)贺东航,孔繁斌.公共政策执行的中国经验[J].中国社会科学,2011,(5):61-79+220-221.
(15)Tingzhou Li, “Making Teaching an Enviable Profession: New Epoch-making Teacher Policy in China and Challenges,” ECNU Review of Education, no.2(2018):146-152.
(1)该数据库由华东师范大学国家教育宏观政策研究院建设,搜集了改革开放以来国家和省级层面与教育有关的法律、公报、规划、措施、办法、条例、标准、政府公开出版物等文献,是服务教育政策研究和教育决策的基础性数据库。
(2)李廷洲等.我国中小学教师职称改革:发展历程、关键问题与政策建议[J].中国教育学刊,2017,(12):66-72.
(3)黄萃等.政策工具视角的中国风能政策文本量化研究[J].科学学研究,2011,(6):876-882.
(4)吕武.我国当前学前教育政策工具选择偏向及其影响[J].教育科学,2016,(2):77-81.
(5)McDonnell L M, Elmore R F., “Getting the Gob Done: Alternative Policy Instruments,” Educational Evaluation and Policy Analysis 9, no. 2(1987): 133-152.
(6)李新翠.世界银行教师政策框架述评—基于“教育结果系统评估与基准测试”项目的教师政策框架[J].比较教育研究,2014,(10):85-90.
(7)Vegas E. et al., What Matters Most in Teacher Policies? A Framework for Building a More Effective Teaching Profession. SABER Report(Washington, DC.: Human Development Network, World Bank, 2012),1.
(8)李廷洲.教育事业发展进入重视“软件”时代[N].中国教育报,2018-2-23(03).
(9)李廷洲等.“十二五”期间我国教师政策计量分析与前瞻——基于政策工具视角的文本计量研究[J].中国教育学刊, 2016,(9):36-41.
(10)李廷洲等.中小学教职工编制的政策分析与路径探析[J].教育研究,2016, (2):63-69.
(11)李廷洲等.中小学教师职称改革成效如何——基于多元评估理论视角的政策评估研究[J].教育发展研究,2018,(9):17-23.
(12)李廷洲.新时代教师队伍建设必须加强党的领导[N].中国教育报,2018-8-17(02).
(13)郅庭瑾,吴晶.教育优先发展的三个关键指标[N].光明日报,2018-10-16(16).
(14)贺东航,孔繁斌.公共政策执行的中国经验[J].中国社会科学,2011,(5):61-79+220-221.
(15)Tingzhou Li, “Making Teaching an Enviable Profession: New Epoch-making Teacher Policy in China and Challenges,” ECNU Review of Education, no.2(2018):146-152.