It has always been our educational pursuit and ideal to realize the balanced development of compulsory education and promote educational equity. But in fact, influenced by a series of subjective and objective factors, our realistic education is drifting away from our educational ideal, resulting in unreasonable allocation of educational resources and uneven development of compulsory education, which is manifested in the increasingly serious phenomenon of "school choice fever". As we all know, the school selection fee is a high cost, and it is a contest between money and power. Take the curve of buying a school district house as an example. The average prices of school districts near the most popular schools in Nanjing, namely Langya Road Primary School, beijing east road Primary School, Mechanics Primary School and Lhasa Road Primary School, ranged from 1.9 million to 20,000 /m2, while the transaction prices of surrounding non-school districts ranged from 1.3 million. Such housing prices make school choice a money game for the rich, famous schools become a paradise for the rich, and education also shows Matthew effect development. In this case, who will meet the demands of some children for quality education resources? Who will guarantee the fairness of education? To some extent, the selection of schools is the selection of teachers, and the teacher rotation system is produced under the above background.
First, the performance of policy distortion.
Not long ago, the "Measures for Implementing the Compulsory Education Law of People's Republic of China (PRC) in Jiangsu Province" (draft for comments) was publicly solicited for opinions, and it was proposed that "teachers who have been teaching in the same school for six consecutive years should flow". In view of the fact that Jiangsu Province takes the lead in implementing teacher rotation in the whole province, there is an evaluation that "Jiangsu people are the first to eat crabs-conditional, uncertain" [2]. Conditional because the overall level of economic and social development in Jiangsu is relatively high, and the difference between urban and rural areas is relatively small; I'm not sure, because there is no successful precedent in this area, and many cities have only made some attempts in the form of pilots. Although the teacher rotation system has played a certain role in narrowing the gap between schools and improving the level of teachers, it is not enough to explain the success or failure, because there are many problems in the implementation of the teacher rotation system, especially the policy distortion.
The distortion of education policy refers to the bad phenomenon that the implementation activities and results deviate from the policy objectives in the actual implementation process of an education policy. There are five main manifestations of policy distortion: one is to redefine the boundaries of policy concepts; The second is to adjust the combination structure of policy arrangements; Third, the policy is overhead; Fourth, the policy is exaggerated; The fifth is the policy defect [3]. Specific to the teacher rotation system policy, mainly reflected in the following aspects.
1. was officially implemented, but the policy failed to go deep.
Formal implementation is an empty policy problem, that is, in the process of implementing educational policies, only documents are issued, slogans are shouted, practical plans are not formulated, and only superficial articles are made, which leads to the policy becoming a mere formality. Some school leaders are worried that the teaching quality of their schools will be affected by the rotation of teachers, so they just go through the motions and don't implement them. Take Nanjing as an example. As early as 2000, the Nanjing Municipal Education Commission planned to try out the teacher rotation system in some key schools and experimental schools in five counties and urban areas, but by September 2006, only one person was really in place in Gulou District.
2. Flexible implementation, deviating from the spirit of the policy.
The so-called flexible implementation is consistent with the original policy on the surface, but actually deviates from the spirit of the original policy. On the surface, it acts according to the rules, but in fact there is another set of countermeasures [4]. The leaders of some high-quality schools do not make realistic analysis and consideration on which teachers meet the requirements of rotation, and do not replace the backbone teachers that weak schools really need, but replace the redundant teachers to meet the requirements of policy indicators; Some schools even use low-level methods such as drawing lots to select teachers in turn. In this way, the perfunctory work at the source will inevitably have a negative impact on the formal development of teacher rotation and increase the difficulty of implementing the teacher rotation system.
3. Selective implementation and narrowing of policy defects.
Policy defects refer to the existence of trade-offs in the process of policy implementation, and the executors selectively implement some contents, which leads to a great discount on the policy effect. This phenomenon is also called policy contraction. Judging from the actual situation of each pilot at present, the biggest defect of the policy is that the welfare treatment of rotation teachers can not be effectively guaranteed, which has hit the enthusiasm of rotation teachers to some extent. In addition, after the rotation of teachers, the corresponding personnel management system can not keep up, which leads to the failure to implement the ownership of teachers in rotation, and some teachers also have anxiety and resistance.
4. Utilitarian implementation distorts the original intention of the policy.
The original intention of implementing the teacher rotation system is to balance the teachers between schools and promote the balanced development of education. However, some policies linked to teachers' rotation formulated in some areas have made teachers' rotation unpleasant. These policies are mainly reflected in the evaluation of professional titles, which leads to the deviation of some teachers' understanding of rotation. They just use this opportunity as a means of fame and fortune, paving the way for future promotion, rather than really trying to help disadvantaged schools. In this sense, the rotation of teachers has become a utilitarian system, and the original intention of rotation has been distorted. In addition, it remains to be seen whether this promotion system linked to rotation rigidity is reasonable.
Second, explore the reasons
The distortion of the above-mentioned teacher rotation system and policy leads to the deviation of teacher rotation from the track. In order to put the teacher rotation system on the right track, it is necessary to analyze the reasons of policy distortion in detail.
1. The policy expectation is too high and the policy capacity is overloaded.
Policy capacity refers to how many problems a policy can solve and the degree to which it can solve them [5]. There is a limit to this ability. If the expectation of the policy is too high and exceeds the limit of the policy capacity, it will be like an overloaded truck, which will not only slow down, but also be in danger of overturning. Policy overload will also make it difficult to effectively implement policies. The policy expectation of the current teacher rotation system is to promote the balanced development of education, which is beyond the policy capacity of the teacher rotation policy. The imbalance of teachers is only one aspect of the imbalance of education, and it is unrealistic to try to solve this problem by balancing teachers. The imbalance of public financial investment and the industrialization of education have caused the gap between schools in all aspects, so it is necessary to take a multi-pronged approach to make education develop in a balanced way. While implementing the teacher rotation policy, we should also implement some supporting measures to enhance the policy ability.
2. It is difficult to locate dual roles and coordinate multiple interests.
The conflict of interests among policy stakeholders is one of the reasons why it is difficult to effectively implement policies. Policy stakeholders mainly include target groups and policy implementers. The acceptance of policies by target groups is related to the policy interests they agree with, and the implementation of policies by policy executors is also related to their own interests. Paradoxically, policy executors are often the target group, and the conflict of interests of dual roles makes them make choices when making policy actions. Policy distortions often occur because they pay more attention to the role of target groups in the face of conflicts of interest, and the sense of responsibility of policy implementers is weak [6]. In addition, the interests of target groups such as education administrative departments, school leaders, teachers and parents are different, and various conflicts of interest are intertwined, which makes it impossible to implement the teacher rotation system in depth and all kinds of policies are distorted.
3. The policy system needs to be improved, and the stamina of teachers' rotation is insufficient.
The policy system here refers to the welfare treatment, professional title evaluation, personnel system and other policies implemented in conjunction with the teacher rotation system. The reason why there are policy defects and selective implementation is that there are loopholes in the policy system, and policies such as welfare benefits are not clearly required, which are in a dispensable position and give people the opportunity to selectively implement. In this way, teachers in rotation will have worries, not only the increased cost of living can not be guaranteed by policies, but also the vague personnel relationship makes teachers lack a sense of belonging, which leads to teachers' inability to work with peace of mind after rotation, let alone improve teaching quality. In Beijing, although the pilot has achieved results in the allocation of resources, the problems involved in rotation, such as teachers' personnel relations and salary reform, have not been properly solved, and the teachers involved in rotation are more or less worried about their future.
4. Supervision needs to be strengthened, and the rectification mechanism needs to be improved.
In the process of policy implementation, effective monitoring and correction must be carried out through constant feedback, so that the policy will eventually become perfect and realize the policy objectives. One of the reasons for the policy distortion in the implementation of the teacher rotation system is the lack of effective monitoring, failure to find problems in time and failure to take policies to correct them in time. There are many distortions in the implementation of the teacher rotation system, such as drawing lots to rotate posts, school leaders talking but not practicing, and inadequate living allowance. If there is a perfect supervision, inspection and rectification mechanism to monitor, it will not lead to the anxiety of teachers in rotation, and problems such as policy shrinkage, flexible implementation and symbolic implementation will also be effectively managed. Therefore, in order to keep the policy on track and implement it according to the predetermined plan, an effective monitoring system and feedback rectification mechanism are essential.
Third, some suggestions.
Alison, an American scholar, thinks: "In the process of achieving the policy objectives, the functions determined by the scheme only account for 65,438+00%, and the remaining 90% depend on effective implementation". Nowadays, in order to achieve the goal of balanced education, many parts of the country are carrying out pilot work of teacher rotation. How to make the rotation of teachers normal and effective is a problem that everyone who cares about education should think about. Based on the successful experience of Japan, South Korea and other countries that took the lead in implementing the teacher rotation system, combined with the problems existing in the actual implementation process in China, the following suggestions are put forward.
1. Optimize the policy environment and improve the policy system.
In view of the imperfect teacher rotation policy system and the lack of specific policies and measures, the education administrative department should organize experts to conduct research and demonstration, go deep into the grassroots level, and understand the real needs of the target groups and the real roots of the problems. To fundamentally solve the problem of unbalanced development of primary and secondary education in China, perfecting the policy system is the premise. The state should implement the national standard of teachers' salary and welfare, narrow the gap between regions and schools through state subsidies, and optimize the policy environment of teachers' rotation.
2. Reform the personnel system and establish the position of teachers as civil servants.
After the rotation of teachers, personnel relations and administrative relations remain in the original unit, which makes many teachers feel isolated in the rotation school and it is difficult to really integrate into the weak schools. Therefore, the implementation of teacher rotation must also reform the personnel system. In this regard, we can learn from the successful experience of Japan and South Korea, so that teachers can change their status and become national civil servants, and teachers can be transferred and rotated regularly. This can further straighten out the relationship between teachers, schools and educational administrative departments. When teachers become "national people", they are forced to move, and the treatment of teachers also follows the unified standards of the education administrative department, thus ensuring the attractiveness of teachers' profession and improving their professional level.
3. Eliminate conflicts of interest and pay attention to people-oriented.
It is difficult for a policy to take into account the interests of all parties and achieve perfection. The teacher rotation system did not fully consider and demonstrate the policy interests recognized by the target group in the process of formulation and implementation, which led to the conflict of interests in policy implementation. As a remedial measure, we should try our best to build a mechanism to resolve conflicts of interest, so as to reconcile various contradictions and make the education administrative department, school leaders, parents, students and teachers Qi Xin work together to make joint efforts towards the goal of educational equity. At the same time, the rotation of teachers should be people-oriented, not only students-oriented, but also teachers-oriented. While meeting the needs of parents and students for high-quality educational resources, we should also ensure the quality of teachers' life and work, implement more humanized safeguard measures and incentive policies, solve problems for teachers, and do a good job in support and service.
4. Strengthen education legislation and improve the supervision mechanism.
To promote the flow of teachers, we must combine rigidity with softness and take a multi-pronged approach. While paying attention to people-oriented, we should also protect teachers in the form of legislation and make the flow of teachers become the norm. After the teacher rotation policy has legal effect, it will be effectively guaranteed if it is thoroughly implemented. For example, Jiangsu province plans to make regulations on the flow of teachers and principals in the form of legislation, and publicly solicit opinions from the society on how to implement it. This practice is worth learning from other provinces when implementing the teacher rotation policy. At the same time, it is necessary to establish and improve a set of policy supervision and rectification mechanism, correct the tendency of deviating from the policy objectives in time through supervision and feedback, and correct and improve the teacher rotation system and policy through constant feedback, so that the teacher rotation will develop in the direction expected by the people and form a long-term mechanism.
Four. Concluding remarks
Not long ago, the Social Investigation Center of China Youth Daily conducted a survey through China. The results show that only 22.8% people do not intend to choose schools for their children, 57.3% people are willing to buy high-priced school districts, and 42.7% people think that buying school districts is not worth it. People who buy school districts still have an advantage. This data tells us that more than half of parents are willing to buy school districts at high prices to achieve curve school choice, and the phenomenon of school choice is getting hotter and hotter. If we want to curb this upsurge of school choice through the system and policy of teacher rotation, we must take effective measures to gain the trust of parents, otherwise the teacher rotation will only be an unpredictable thing.
refer to
Chen Zhenghua, Fan Haiyan. Problems existing in teachers' rotation system and policy suggestions. Teaching and Management, 2009(34).
[2] CCTV: The implementation of teacher rotation system in Jiangsu Province is conditional and uncertain [DB/OL]. http://news。 Ellipsis/a/20100402/002037.htm.2010-4-2.
[3] Li Jiangyuan. A comprehensive analysis of the causes of educational policy distortion. On Modern Education, 2000(5).
[4] Lithology. The manifestations, causes and corrective measures of the deviation in the implementation of educational policies. Educational exploration, 2006( 1).
[5] Ma Huanling, Rui. A review of the implementation of the teacher rotation policy. China Education News, 2009(6).
[6] Yuan Zhenguo. Education policy. Nanjing: Jiangsu Education Press, 200 1.
(Editor Fu Yijing)