政府职能转变视野中的公共教育治理范式研究
吴景松
摘要：公共教育治理的兴起,是现代公共教育日趋成熟的一个标志,它表明国家对教育的干预进入一个新的阶段。在20世纪中期之后,世界各国进一步加强干预公共教育,都试图通过国家强制性权力在公共教育领域实现国家利益。时至20世纪80年代左右,在一种竞争与效率导向的市场思潮影响下,世界范围内对国家垄断公共教育的不满和反思也出现在公共教育治理之中。“教育国家化”不但没有解决政府最初所指向的那些问题,而且不断加剧政府职能转变背景下旧的治理范式的合法性危机。
公共教育治理范式的重建成为公共教育治理运动的重要部分,既涉及公共教育领域内政府职能的转变,也涉及政府、市场、社会之间相互关系的调整。研究政府职能转变视野中的公共教育治理范式,目的在于解决公共教育治理过程中的一系列问题。这些问题概括为:(l)政府在公共教育治理过程中究竟居于什么样的地位?对政府如何介入公共教育领域的关注究竟对公共教育治理实践产生什么样的影响?(2)政府沿着不同的治理路径所形成的公共教育治理范式,其内部要素和关键特征有哪些?(3)遵循国家逻辑的公共教育治理范式中,政府成为单一的供给者是否需要批判和消除,还是为了满足人们的多样化需求而使供给者走向多元化?消除单一的政府供给在公共教育治理实践中是可行的吗?(4)现实的公共教育治理属于何种范式?导致公共教育治理范式转换的内在动力是什么?转换的方向主要体现在哪些方面?
公共教育治理范式作为公共教育治理实践的提炼与升华,在指导公共教育治理实践并推动公共教育发展中发挥了举足轻重的作用。作为公共教育改革的一种新的理念和运动,公共教育治理范式实际上是对各种公共教育改革理论和实践的一种深刻的反思、继承和“集成”。公共教育治理范式是在一定的时空范围内生成,并沿着某一方向继续向前发展。公共教育已经实现了从“国家是否干预”到“国家应该如何干预才是有效的”的转变,“国家如何干预才是有效的”成为20世纪中期以来公共教育治理的主流话题。遵循“国家逻辑”的“教育国家化”使得政府在公共教育领域不断实行职能扩展,导致了公共教育的垄断生产和公立教育质量低下。倡导竞争与效率的“市场逻辑”,主张政府尽可能少地介入公共教育领域,把公共教育的生产交给市场。结果,公共教育的公共性与公益性不断被市场化改革削弱,引发教育机会不均等与教育非均衡发展的新危机。一种既能维护公共教育的公正性、公益性,又能形成公共教育内、外部市场的治理范式成为新的需求。具有竞争性与非营利性的第三部门成为提供公共教育的最佳选择,人们开始沿着“第三条道路”探索公共教育的有效治理途径。在此基础上,本文依据公共物品理论,按照公共教育供给过程中的提供与生产组织的不同将公共教育治理范式划分为规制型、市场型、服务型与网络型四种治理范式。
基于上述研究,本文结合调查结果分析了当前我国公共教育治理的困境及其范式转换面临的问题:(l)教育的公共性与公共教育治理研究范围的不能包容性;(2)非政府公共组织在公共教育治理中的主体资格问题;(3)非强制性治理方式在公共教育治理中的地位问题;(4)有限的教育权利救济与政府行为之间的对接问题"同时探讨了公共教育治理范式的共存性及其可选择性。进而提出我国公共教育治理范式的转换策略:(l)树立效率与公平兼重的治理理念;(2)界定“有限政府”中多元治理主体的权限边界;(3)理性选择“有限教育市场”中的治理工具;(4)重塑公共教育治理的“有效服务”功能。
关键词：政府职能；治理工具；治理范式；公共教育
Study on Paradigms of Public Education Governance from Perspective of Government’s Function Transformation
WU Jingsong
Abstract:As a symbol of the increasing maturity of modern public education,the rise of public education govemance represents the state intervention in the field of edueation having entered a new stage.In the mid-20th century,most of the nations in the world have enhanced to interfere with public education to achieve the national interests in the area of public education by state power.During the period of 1980s,influenced by the market-oriented ideology of competition and efficieney,the widspread diseontent and retrospect with state monopoly appeared in woridwide public education govemance.Education nationalization not only failed to solve the original problems it aimed at but also pricked up the crisis of legitimaey of old paradigm of govemance in the context of the transformation of government functions.
Public education govemance paradigms reconstruction as an important part of the public education govemance movement is involved with the relationship adjustlnent between the government,the market and the society as well as the transformation of govenunent functions within the field of public education.It is intended to solve a series of problems in the proeess of public education govemance to study the public education govemance paradigms in the vision of the transformation of government functions.These problemscan be summarized as follows:(l)what is the position of the government in the course of public education governance?What kinds of impacts does the concem of the government intervention in the field of public education governmance make on public education govemance practice?(2)What are the intemal characteristics and key elements of the different paradigms of public education govemance formed along different paths?(3)Should the government as the sole education provider be critieized or eradieated,and is it needed to go to the path of multi-providers to cater to the demands of diversification?(4)What is the paradigm of public education governance in reality?What is intemal driving force of the conversion of public education govemance paradigrns?what are the directions that the conversion mainly ernbodies?
The paradigms of public education govemance as the refining and sublimation of public education govemance practice have played a pivotal role in guiding the practice of public education.As a matter of public education reform and the concept of a new campaign,public education govemance paradigms are actually the profound reflection,inheritance as well as integration of public education reform theories and practices.Public education has achieved the conversion from the “State intervention or not”to “What kind of state intervention is effective?” “What kind of state intervention is effective”became the mainstream topic of public education governance since the mid-20th century.Following the logic of nationality and education nationality,government has made a continuous function expansion in the field of public education,and this led to public education monopoly production and the low quality of public education.The logic of the market promots competition and efficiency and advocates the government involving in the field of education as little as possible and brings the production of public education to the market.As a result,the commonweal of public education constantly has been undermined by the market-oriented reform,and it also triggered the new crisis of unequal educational opportunities and non-balanced education development.A new paradigm of governance that can maintain the integrity and commonweal of public education and can form the internal and external market of public education has become a new need.Competitive and non-profit third-sector to provide public education becomes the best choice for people along the “third way”to explore the effective management of public education channels.On this basis,the paradigms of public education in this dissertation have divided into 4 ones such as regulation paradigm,market-based paradigm,service-oriented paradigm and network paradigm according to the difference of public education providers and production organizations in the process of education providing.
Based on the study above,this dissertation analyzes the current problems before our present public education governance paradigm:(1)the study scope exclusiveness between commonweal and public education governance;(2)the subjective qualifications of non-governmental public organizations in the process of public education governance;(3)the status of non-mandatory governance paradigm in the course of public education governance;(4)the connection between limited educational rights remedies and government action.At the same time,this dissertation discusses the coexistence and optionality of public education governance paradigms.This dissertation finally proceeds to put forward our strategies for the reconstruction of public education governance paradigms:(1)establishing the concept of the re-treatment of efficiency and fairness;(2)optimizing the arrangement of the powers and responsibilities of the main multi-configuration under the limited government;(3)choosing the governing instruments under the realization of limited education market;(4)reconstructing effective service-oriented public education governance.
Keywords:functions of the government;governing instruments;governance paradigms;public education
（华东师范大学博士学位论文）