我国义务教育阶段公立学校管理模式的研究

摘要：当前我国义务教育阶段公立学校的改革与国家事业单位人事制度改革的要求还存在较大差距，不能与当前经济社会改革相适应，不能从根本上消除公立学校本身存在的各种弊端。本文在查阅大量文献和国家相关法律法规以及政策的基础上，通过分析当前义务教育阶段公立学校存在的弊端和90年代以来义务教育阶段公立学校改制问题以及我国民办学校运行机制和美国特许学校特点，在《义务教育法》等法律法规框架内，从一名基层工作者的角度，力图提出以变革教职员工管理模式和转变教育行政部门职能为突破口，健全教育行业职工养老保险、医疗保险等基本保障制度和政府投入办学经费总额包干制度为保障，以不收学生学费、杂费，但拥有与民办学校类似的自主权为主要特征的义务教育阶段公立学校管理的改革模式，来激活学校活力，提高学校效益。改革的具体构想如下：教育行政部门简政放权，经费投入实行总额包干，从微观管理转向宏观管理，取消校长行政级别，实行校长职级制，学校对教职员工具有人事管理权，对工资分配具有支配权，学校校长按照学校章程自主办学，并引导教师向专业化发展，提高教育教学质量，维护学生的发展权利。教育行政部门主要通过督导评估和审计等手段展开对学校及其校长的考核，通过制定行业管理政策和开展业务培训等为校长专业化和教师专业化发展创设环境。

文章共分五部分。第一部分主要分析了我国当前义务教育阶段学校现状，并对公立学校存在的弊端、民办学校的优势和20世纪90年以来公立学校改制经验教训进行了详细地分析。第二部分在分析美国特许学校特点的基础上，结合对我国当前义务教育阶段学校现状分析，提出改革义务教育阶段管理模式的思路，并阐述了义务教育阶段公立学校管理改革模式的含义及其理论依据等。第三部分是本文的核心部分，对构建义务教育阶段公立学校管理改革模式的基本制度进行了具体探讨，从教育行政部门、学校两个层面，对学校管理、校长和教职员工职业化、学生权益维护、办学经费、督导评估、考核等方面进行了详细论述。第四部分对义务教育阶段公立学校管理新模式实施策略进行了分析，提出了搞好宣传、试点、总结经验，稳健推进等策略。第五部分对义务教育阶段公立学校管理新模式进行了前景预测，认为该管理模式为彻底实施近几年来国家关于事业单位人事制度改革的政策提供了配套条件，为逐步消除当前义务教育阶段公立学校在现阶段所暴露出的各种弊端提供了可能，为教育行政部门彻底转变职能，理顺政事关系提供了可能，但同时也会遭受部分人员的抵触。

文章最后指出，本政策的制定基本符合公共政策制定理论。虽然目前公立学校的管理模式较为单一，但公立学校管理模式的发展方向应是多样化的，本文所阐述的管理模式因其借鉴了民办学校的办学机制，其将成为多种管理模式中的具有较强生命力一种模式。义务教育教育作为社会公益性的事业，随着社会的发展，政府将逐步加大对民办学校的投资，公立学校也将借鉴民办学校灵活的办学机制，公立学校和民办学校将逐步走向融合。

关键词：义务教育；公立学校；管理模式

The researches about management systems of compulsory education public school in china

Abstract：There is a big different between the reform of public schools in compulsory education period and the reform of personal system in state institutions and this can’t suit the reform of economic society and can’t dispel the corrupt practice existed in public schools. This article is based on a lot of documents and relevant laws and rules. It analyses the current corrupt practice and the reforming problems of compulsory education and also tells Chinese school running system and the characteristics of American special schools. The writer, an educator at the basic level, tries to raise the management model which will make the changing of educational duty as a breach, improve the system of old-age insurance and medical insurance in the educational trade and won’t charge the students tuition fee and extras. This model can insure the schools have the right similar to private schools and thus introuses the schools’ enthusiasm and improve the benefit of schools. Educational administrative departments should streamline administration and institute decentralization, put the money totally and change microcosmic management into macroscopic management. School headmasters’ duty ranks should be taken instead of their administrative ranks. Schools should have the right of school stuff personal management and also have the right to arrange the salary. School masters show run schools according to the school regulations and lead the teachers to develop professionally. Educational administrative departments should mainly work out trade management policy and supply professional training for school masters and improve teachers professional environment by supervising and auditting schools and school masters.

There are five parts in this article. The first part gives the details of the corrupt practice of public schools, the advantages of private schools and the experience of public schools’ reforming. The second part raise the ideas of the management model and theory of compulsory education based on the American special schools. The third part is the core of this article. It explores the basic system of forming compulsory education management model and tells the ideas of school management, school funds, supervising and evaluating and audit in detail from two sides which are educational administrative departments and schools. The fourth part analyses the tactics of public schools management model and raises the tactics of good properganda ,experiments and summary. The fifth part forcasts the management model of public schools in compulsory education period and tells the idea that this model really can help the reform of personal system in institutions, can help to dispel the corrupt practice in public schools, can help the educational administrative departments to change their duties and also can help to smooth the relations for government affairs. But this model can be against by some people.

In the end, this article points out that this model accord with the public policy making theory. Though the management model of public schools is quite simplistic at the moment, the tending of the model should be varied.The model in this article uses private school managent method for reference and will become one of the most powerful method later. Compulsory education is a public welfare and the public schools and the private schools will merge together with the developmet of society and the invest of the government.

Key words: compulsory education, public schools, management model

（张文学 教育管理 山东师范大学硕士学位论文）