【作者】 张茂聪；

【导师】 戚万学；

【作者基本信息】 山东师范大学 ， 教育学原理， 2010， 博士

【摘要】 当代社会,随着民主化进程的加快和教育功能的全方位释放,教育公共性愈益彰显,深刻揭示教育公共性内涵,维护和优化教育公共性实践,既是当前教育发展改革的实践呼唤,亦是把握教育本质的理论诉求。从世界范围看,教育的变革与发展正在呈现公共性这一新的时代特性。教育所蕴含的公共性不是人为赋予的,亦非主观思维的结果,而是人类教育发展过程中历史地展现出来的。教育公共性的彰显不仅是教育特性的一种时代变化,也是当代教育发展的一种新的价值诉求。20世纪90年代中期以来,社会转型已使中国的社会结构发生深刻变化,随着市场经济的发育,通过市场向社会提供教育服务,已成为一种重要的教育运行机制。同时,也与现行教育体制表现出极大的不相容性,教育的公共性问题由此成为一个不容回避的问题。本研究通过对国内外教育公共性的已有研究成果的梳理、分析、综合和概括,结合中西方国家取得的成就,针对实际情况,在实地考察和案例研究的基础之上,对存在的问题追寻原因,寻找对策。通过研究教育入学机会均等、教育过程平等、教育资源、设施的平等,培养具有基本素质和连带作用的公民这一结果的平等等内容,构建一套系统、科学和行之有效的教育公共性的内容体系。本研究指出,公益、公正、平等、共享是教育公共性的核心内涵。教育公共性一方面表达了教育作为公共领域事务的事实存在,另一方面,教育公共性已成为公共性延伸概念,它既是对公共性在教育领域的具体说明和应用,也是教育在特定领域对公共性的反映。因此,教育公共性的功用主要体现为:分析和批判教育的工具;建立教育制度,构建教育内容和目的,选择教育手段和形式等诸多教育关系的公共原则;教育立法和教育政策的合法依据;政府提供教育公共服务的价值尺度和财政基础;教育作为公共事务和公共物品接纳社会参与其中和存在于社会公共空间的正当性。总体说来,其在宏观方面,诸如制度安排、政策设计上,从立法、财政、社会环境等体现教育公益性、公正性;在微观方面,诸如教育目的、内容、形式上,指向培养具有公共品质的人,教育过程上体现教育平等。教育公共性的保障,必须建立在一套完整的教育公共服务体系之上。必须加强公共服务体系的创新,提高公共服务水平。这就需要进一步强化政府在教育公共服务方面的职能和责任,就要探索教育公共服务供给主体多元化和供给方式多样化,就要完善教育公共服务的监管和评价体制,建立以中介评估为主导的多元化教育监管和评价体系。在政策设置上,则要把教育公平作为教育公共服务均等化的政策核心,以教育公共服务最低公平模式,推进实现教育公共服务均等化:一是确立教育基本公共服务最低公平原则,制定最低的提供标准,并通过多级政府分担经费来保障各地政府有能力提供这类服务。二是公共服务标准可根据行业特点,采用实物标准、经费标准和服务质量标准等,但最重要的是确保服务质量,并通过绩效评价来促使其达到标准。三是倡导等价性原则。国家允许并鼓励有财政能力的地方政府或财团提供更多的、质量更高的教育公共服务,其经费应当由提供服务的政府承担。为此,应提高财政性教育经费占国内生产总值的比重,保障义务教育阶段的均衡投入,特别是要明确各级政府权责,建立由各级政府分担的教育投入机制;应深化教育体制改革,从体制上为义务教育均等化提供保障;应加强政府部门的责任,构建服务型政府。教育公共性必须建立在公共财政的基本制度之上。教育公共服务的价值取向决定提供教育服务是政府的一项基本职责,必须以政府为主体,担当教育公共财政的政府职责。一是基于区域财政能力不均衡的现实,建立义务教育的政府间转移支付系统。这样一个机制的建立和发展应该成为今后义务教育财政改革的重点。要明确中央和省用于义务教育的资源的使用目的和不同用途。目前首要的应该是保证贫困和农村地区义务教育投入的充足水平。中央和省级政府应该对这些地区提供帮助,让这些地方的教育发展跟上社会经济发展的步伐。中央和省级政府还应该把资金分配与地方上强化责任制,提高资源使用效率的努力程度联系起来。要合理设计转移支付项目,要确定给每个县/学区均等化资金数量的方法。一个常用的方法是运用因素法拨款公式,综合考虑学生群体的特征、基层财力、财政努力程度和其他因素。要加强贫困学生和寄宿制学生资助,使资助真正落实到这些学生。要平衡中央和省教育资源分配过程中目标和方法的一致性和多样性问题。二是把保障教育公共财政的公平投入作为公共财政治理的基点,完善教育投入保障法律规定。根据经费需求建立经费保障机制,是解决教育经费供给不足的一项重要举措。科学地界定现有法律中各级各类教育经费需求的定额标准,才能从根本上解决经费需求和供给之间的矛盾。特别是要建立公平有效的教育财政补助制度和方式,就要从最基本的经费需求分析入手,将拨款制度和模式与经费需求结合起来,确定拨款基准额,并考虑特殊地区、特殊人群的额外需求,对他们给予公平性对待。三是把增加灵活性作为均衡推进义务教育公共财政政策的必要补充。要落实国家义务教育财政“低保”政策,明确中央政府财政支持的重点。义务教育财政“低保”目标应包括:最低保障维持学校教学运转所需基本条件的要求;最低保障完成国家义务教育目标所需要的基本要求;最低保障为国家义务教育可持续发展奠定基础所需条件和要求。从长远看,随着国家对义务教育要求的不断提高,义务教育办学条件需要同步提高,“低保”的标准也不断提高。义务教育财政“低保”问题,不是政府短期的“突击行为”,而是实现义务教育财政均衡的“长效机制”。要按区域推进顺序选择从县域均衡、省域均衡到全国均衡推进的财政政策。从义务教育均衡推进状况看,省际间义务教育的差距在短时期内缩小基本是不可能的。县域内义务教育均衡的重点是缩小城乡之间的差距,县级教育财政投入和省市级财政转移支付的重点在农村义务教育。贫困地区义务教育均衡的重点在县域内,高于和处在全国义务教育均衡平均水平的地区,推进义务教育均衡的重点在省域内。在同一区域内,以学生数量为标准,实行义务教育均等化拨款制度。推进县域内和省域内义务教育均衡,教育财政政策应是在同一行政区内对于实施义务教育的学校以学生数为标准,实行均等化拨款制度。四是根据不同区域内接受义务教育人口的数量,确定中央政府纵向财政转移支付的规模。教育公共性建立需要进一步厘清政府、市场、社会三大主体关系。首先,要把优先、均衡、效率作为政府配置教育公共资源的基本原则,即教育公共资源的优先配置原则、均衡配置原则、效率配置原则。其次,要正视解决择校、重点校问题。也就是要加大教育投入,解决教育经费短缺问题;加强法律规范,实现校际间均衡发展和采取有效措施,改造和扶助薄弱学校。第三,要注重发挥社会非营利组织在教育的宏观管理中,维护教育公平,发挥独立的作用,公共参与教育决策、管理及其教育活动过程。教育公共性实践的推进要重视彰显学校教育与社区互动方面的公共性。凸显社区公共性是当前社会公共事务管理的一个趋势。学校是社区中的正式组织,亦应是社会公共事务管理的内容之一。社区居民必须积极地、有组织、有系统地参与学校的教育计划、政策制定、解决问题以及评估。正是在这种参与中,公民才得以获得关于学校的第一手资料。他们可以提出问题,获得信息,表达观点,提出建议,对有争议的问题提出自己的见解。他们是决策过程中重要一员,能促使学校跟上社会变化,促进教育变革。人们逐渐认识到,教育不仅是学校的责任,也是家长、社区和社会的责任。更多还原

【Abstract】 In contemporary society, with the all-round releasing of educational function and acceleration of democracy, the educational publicity embodies increasingly. To reveal the connation of the educational publicity, and to maintain and optimize the practice of the educational publicity, are not only the practical requirement of educational development and reform currently, but also the theoretical appeal for grasping utterly the essence of education.From a global perspective, the educational change and development are showing publicity, the new feature of era. The publicity implied in education neither be given by human nor be the results of subjective thinking, but emerges historically in the development of the human being’s education. The exposition of the educational publicity is not only a kind of time change of educational features, but also a kind of new value appeal for the contemporary educational development.Since the mid-90’s of the 20th century, the social transformation has made the social structure change deeply. With the development of market economy, providing educational service to the society through the market has become an important educational operation mechanism. Confronted with this new change, the present education system shows great incompatibility, and the issue of the educational publicity can not be avoided.The dissertation searches for causes of the present issues and seeks strategies on the basis of site research and case study through carding, analyzing, synthesizing and generalizing the achievement of existing study on the educational publicity at home and abroad, combining with the achievements of China and the western countries, for the actual situation. By researching the equality of enrollment opportunity, the equality of educational process, the equality of educational resources, the equality of facilities, and the equality of results in cultivating civics with basic quality and accessory roles, the dissertation is aimed at constructing a systematic, scientific and effective system of the educational publicity.This study puts forward that the public welfare, justice, equality are the central connation of the educational publicity. On the one hand, the educational publicity expresses the factual existence of education as affairs of public field, on the other hand, the educational publicity has become an extension of the public nature’s concept. It is not only instruction and application of public nature in the field of education, but also reflection of education in specific area to the public nature. Therefore, the functions of the educational publicity are mainly reflected as follows: analyzing and evaluating education as an approch; establishing education system, constructing educational content and purpose, and choicing public principles of such eduational relations as education means and education forms; being the legal basis of educational legislation and policies; being the value and financial basis of government’s providing educational public service; putting forward the legitimacy of education as public affairs and public property accepting the community involvement and the legitimacy of existing in the public space of society. Overall, the eduational publicity embodies the public welfare and justice of education from the perspective of legislation, finance and social environment, from such macro perspectives as institutional arrangements, policy design; aims to develop civics with public quality, and embodies the equality in the process of education, from such micro perspectives as educational purpose, content and form.The educational publicity assurance must be on the basis of a complete educational public service system. The innovation of public service system should be strengthened and the level of public service improved. It needs to further strengthen the government’s functions and responsibilities, to explore the pluralism of supplying subjects and the diversification of supplying forms in educational public service, to improve the supervision and evaluation system of educational public service, to establish a diversified and intermediary-led system of educational supervision and evaluation. On the policy arrangement, educational equity should be regarded as the policy core in the equalization of educational public service, so as to promote the equalization of educational public services by the minimum equity model of educational public services: first, it’s important to establish the minimum equity principle of educational basic public services, to make a minimum standard of providing, and to guarantee the local governments capable of providing such services through cost-sharing of multi-level governments. Secondly, such standards of public service as physical standard, financial standard, and service quality standard, can be used according to the industrial characteristics, but the most important thing is to ensure the service quality, and to promote it up to standard through performance evaluation. Thirdly, the equivalence principle should be advocated. The state should allow and encourage the local governments or consortia with financial capacity to provide more educational public service of higher-quality, and the funding should be financed by the governments which provide service. Thus, the proportion of the financial educational budget in GDP should be raised to ensure a balanced investment in compulsory education, especially to clarify the power and responsibility of all levels of governments so as to establish educational investment mechanism shared by all levels of governments; the reform of education structure should be deepened to guarantee the equalization of compulsory education from the perspective of system; the responsibility of governmental organs should be strengthened to build service-oriented government.The educational publicity must be based on the basic assurance system of public finance. The basic value of educational public service decides that providing educational service is a basic duty of government. Government as the main subject should take responsibility of educaitonal public finance. First, inter-governmental transformation payment system of compulsory education should be established according to the regional imbalance of financial capacity in reality. The establishment and development of such a mechanism should be the focus of the following fiscal reform of compulsory education. It needs to clarify the aims and different purposes of the central and provincial governments’resources for compulsory education. But the first priority should be given to ensure that the investment of compulsory education in poor and rural areas has adequate level. The central and provincial governments should provide assistance in these areas, so as to the development of education in these areas keeps up with the pace of socio-economic development. The central and provincial governments should also combine the funds allocation with strengthening local accountability, and improving efficiency of using resources. It needs to design rationally the categories of transformation payments, and to determine the methods of distributing the equal funding amount to each county/ school. A commonly used method is the allocation formula of factor method, taking integratedly the characteristics of student groups, local financial power, fiscal effort and other factors into consideration. The financial assistance of the poverty-stricken students and boarding students should be strengthened so that funding is truly implemented for these students. It needs to balance the consistency and diversity of the goals and methods in the allocation process of central and provincial educational resources. Secondly, guaranteeing the equal investment of educational public finance should be regarded as a basis of public finance administration, to improve the laws’provisions of educational investment guaranteeing. To establish mechanism of ensuring funding according to requirements, is an important step to solve the supplying shortage of educational funding. Unless be defined scientifically the fixed criteria of all levels of educational requirements in the present laws, can the contradiction between demand and supply of funding be solved fundamentally. Particularly, a fair and effective system and methods of educational financial assistance should be established from the most basic analysis of financial needs, by combining the system and pattern of funding with requirements of funding, determining the baseline amount of funding, considering the extra demand of the special areas and special population groups, and treating them fairly. Thirdly, the enhancement of flexibility should be regarded as a necessary complement of promoting balancedly public fiscal policy of compulsory education. It needs to implement the state financial“minimal assurance”policy of compulsory education, and to clarify the focus of the central government’s financial support. The“minimal assurance”financing goals of compulsory education should include: the requirements of minimal assurance of maintaining the basic conditions for running school’s teaching; the basic requirement of minimal assurance of completing national goal of compulsory education; conditions and requirements of minimal assurance of laying the foundation for sustainable development of compulsory education. In the long run, the school conditions of compulsory education should improve synchronizedly, the“minimal assurance”standard is also rising with the country’s rising demand for compulsory education. The“minimal assurance”financing problem of compulsory education, is not the short-term“surprise act”of government, but“long-term mechanism”to achieve financial balancement of compulsory education.The educational publicity needs to further clarify the relations between three subjects: government, market and society. First, priority, balancement and efficiency should be regarded as the basic principles of government’s allocating educational public resources, which refer to the principle of priority allocation, balanced allocation and efficient allocation of educational public resources. Secondly, the issues of the selecting schools and key schools should be confronted and solved. That is to say, the investment in education should be increased to address the shortage of educational funds; the legal norms should be strengthened to achieve a balanced development between the schools; and effective measures should be taken to reform and support weak schools. Thirdly, attention must be paid to the independent role of social non-profit organizations’maintaining educational equity in educational macro-management, and the public participation in educational decision-making, management and the process of educational activities.The promotion of educaional publicity’s practice should attach importance to demonstrate the publicity of interaction between school education and community. Highlighting the publicity of community is a trend of the current social public affairs. School is the formal organization in the community, and should be one object of the management of social public affairs. Community residents must involve actively, organizedly and systematically, in school’s educational programs, policy development, problem solving and assessments. It is in this participation, civics are capable of obtaining first-hand information of the school. They can ask questions, obtain information, express their views, put forward recommendations and their own views on controversial issues. They are important members in the process of decision-making, and able to urge the school to keep up with changes in society and promote educational change. It is recognized gradually that education is not only the responsibility of school, but also parents, community and society.更多还原