【作者】 李树峰；

【导师】 范国睿；

【作者基本信息】 华东师范大学 ， 教育政策学， 2009， 博士

【摘要】 宏观教育政策决策是国家的基本国策制定程序之一。该程序是否健康，取决于教育政策决策利益相关者之间的关系状态；取决于教育政策问题分析的合理性，取决于教育政策方案的针对性，取决于教育政策效果的真实性。这几个环节虽被重视，但仍然存在着一些被忽略的地方。本论文扫描宏观教育政策决策过程，发现其中可能存在的漏洞，为宏观教育政策决策的良性运行建立防火墙。教育政策利益相关者是宏观教育政策决策的核心。它涉及到政策决策者、政策执行者、政策受众者、政策非受众者、政策反馈者和政策评价者等群体。各群体的心理因素、精神自觉以及彼此之间的互动对于政策决策的良性运转有着不可低估的影响。决策者的思维方式、执行者的心理定势、受众者的认知水平、非受众者的容忍限度、反馈者和评价者的价值取向等因素让政策决策充满着不确定性。而各群体的精神自觉状态决定着他们的批判性和适应性。群体内的有机组合或无机组合从源头上决定着政策的好坏，群体间的有机组合或无机组合在过程中决定着政策的好坏。教育政策问题是宏观教育政策决策的起始点。它的产生与发展，经过层层过滤，最终引起政策决策者的关注，从而启动决策程序。教育政策问题不仅仅发生于教育内部，而且也发生于教育外部。教育内部的事件以学生为核心，逐步向外延伸为教师、管理者、以及周围的相关群体。教育外部的事件源自于阻碍社会发展的因素。教育政策问题的产生不是孤立的。一项教育政策问题的背后，隐藏着诸多问题，同时，该项政策问题的出现会连带产生其他的教育政策问题。教育教育政策问题既可能是崭新的，也可能是旧的政策问题的激活。对于教育政策问题的表达，政策受众者的话语空间反映了教育问题的原生态，政策制定者的权威解释稳定了公众心理，专家对于所面临的教育政策问题，追溯根源、探讨现状、预测趋势，为每一类教育政策问题建立档案，以作为后继政策研究与政策实践的重要基础。教育政策方案是宏观教育政策决策的载体。它有着不同的等级划分。按照问题的严重程度，主要有一般方案、重要方案、和应急方案；按照对象诉求和舆论压力的程度，主要有临时方案、短期方案和长期方案。政策方案的设定存在着临界点，超过这个临界点，好的政策不但无法发挥应有的作用，而且还有可能产生相反的作用。政策受众结构的变动、社会的广泛认同度、方案之间的匹配状态、方案解决问题的适中程度、以及方案符合执行者的状况都是政策决策者必须考虑的范畴。当然，教育政策方案也存在着一些陷阱，诸如偏离目标、自由裁量权缺乏有效界定、政策受益者意见缺席等。教育政策效果既是上一个宏观教育政策过程的结局，又是下一个宏观教育政策过程的诱因。教育政策效果的划分有着多重维度。从政策制定者的角度来看，有着预期效果和实际效果之分；从政策执行者的角度来看，有着近期效果和远期效果之分；从政策受众者的角度来看，有着显性效果和隐性效果之分；从政策评价者的角度来看，有着真效果和伪效果之分。对于这些效果的关注，有助于政策决策者全面衡量教育政策，提升宏观教育政策的科学性。更多还原

【Abstract】 Macro policy decision-making in education is one of the developments ofprocedures in the country’s basic national policy. Whether the process is of healthdepends on the state of relationships between the stakeholders in educational policy;on the rationality of analysis in questions in educational policy; on pertinence ofprogram in educational policy; and on authenticity of effects in educational policy.Although these steps are attached importance, some areas in them are still ignored.Based on this, this disertation aims to build safety shield by scanning blind and hiddenzones in macro policy decision-making in education.The stakeholders act as core of macro policy decision-making in education. Thisgroup is composed of decision makers, decision executers, decision target audience,non-decision audiences, decision information respondents and decision evaluators.The psycological factors and spirit consciousness of the stakeholders and interationbetween them are vital to sound policy descision-making practice. For example, wayof thinking of decision makers’, mind-set of decision executors, recognition level ofdecision target audience, tolerance limits of non-decision target audience, valueorientation of decision information respondents and decision evaluators are uncertainfactors in decision-making process. Individuals’ spirit consciousness has great effectson the state of their judegment and adjustment. Organic combination or inorganniccombination in the same group and between different groups have different functionson the policies.The policy issues are initial point of macro policy decision-making in education.They turn up, develop and finally cause concern of the decision makers. Hencedecision process starts. The policy issues happen not only inside eduational circles,butalso outside educational circles. Whereas inside the circles students are the focus to becared, then teachers, school managers and other corresponding counterparts to be studied. Outside the circles are the problems that hinder the development of society.Educational policy issues never isolated. So many other issues support one kind ofpolicy issue, and it also causes other issues to appear. Of course the policy issues areeither completely new or activiation of old ones. For the expression of the policyissues, the policy audiences’ voices show the raw state, the policy makers’interpretation maintain social stability, and experts’ reseaches into the roots, thecurrent state, and the trend of policy issues lay solid foundation for further study.The policy program is carrier of macro policy decision-making in education. Itfalls into some categories. It demonstrates as general program, vital program, andemergent program according to severity of issues; and it shows as temporary program,short-term program and long-term program according to voices and pressure of policyaudiences. There is threshhold for each policy program, beyong which, good policyprogram may not produce sound. effect. Change of structure of policy audiences,degreee of social identity of policy program, matching between each program, extentof problem resolution and program adaptablity to executors are all worthy to beconsidered. Last but not least, there exist traps in policy program such as deviance ofpolicy objectives, scarece of free policy discretion, and absence of policy audiences.The policy effects are ether the result of last policy process or the trigger of nextpolicy process.They demonstrate as anticipated effects and actual effects on the partof decision makers, as short-term effects and long-term effects on the part of apparenteffects and hidden effects on the part of policy audiences, as authentic effects andficthional effects on the part of policy evaluators. Attention to these effects is helpfulto assess educational policy for the scientifice decision-making.更多还原