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    由基本均衡邁向優質均衡,要求各級政府切實轉變職能,提升教育治理能力

    優質均衡得主動而為

    發布時間:2019-08-06 作者:楊春芳 來源:中國教育報

    ■本期聚焦·義務教育優質均衡⑦

    2017年,教育部發布《縣域義務教育優質均衡發展督導評估辦法》(以下簡稱《辦法》),標志著我國義務教育均衡發展從教育資源的基本均衡走向教育資源和教育質量并重的優質均衡。

    與《縣域義務教育基本均衡發展督導評估辦法》規定的督導評估內容和標準相比,一個顯著變化就是由只關注地方政府對義務教育均衡發展的重視程度和財政投入水平的評價,轉向更加關注地方政府在推進義務教育實現優質均衡中所具備的教育治理能力。

    由基本均衡邁向優質均衡,要求各級政府切實轉變職能,保障教育優先發展,明確積極履職“應為”和精準施策“可為”,努力辦好人民滿意的義務教育。

        明確各級政府職責,為優質均衡提供保障

    把義務教育擺在優先發展的突出位置,需要全面落實省級人民政府統籌的責任和縣級人民政府的主體責任。國務院辦公廳印發《對省級人民政府履行教育職責的評價辦法》,明確省級人民政府在教育事業改革發展中應當履行的基本職責包括:領導、管理、保障和推進,并對每項職責的具體內容做出明確規定。

    “促進義務教育均衡發展、保障困難群體受教育權利、及時解決教育熱點難點問題”是省級人民政府履行教育職責的重要內容。

    省級政府要認真貫徹教育優先發展理念,加強頂層設計,整體統籌謀劃省域范圍推進義務教育優質均衡發展的路線圖、時間表、任務書,制定本省統一的目標任務、標準要求、經費保障和實施步驟。

    要健全義務教育優質均衡發展的各項規章制度,從宏觀層面為優質均衡提供必要的政策保障。同時,鼓勵各市、縣根據自身特點,創新優質均衡差異化發展模式和行動路徑。

    縣級政府在促進義務教育優質均衡發展中負有“第一責任人”的主體責任。我國以縣為主的義務教育管理體制,要求縣級政府宏觀調控和管理縣域內義務教育學校。

    縣級政府推進義務教育由“基本均衡”向“優質均衡”邁進,應當主動做到兩個方面:

    一是要持續鞏固“基本均衡”成果,在通過國家縣域基本均衡認定后,確保本縣域義務教育均衡發展年度監測能持續保持較高水平,基本均衡各項指標監測值不能退步。

    二是要向著更高水平推進優質均衡,在鞏固義務教育“均衡水平”的同時,應更注重教育質量“發展水平”的提升,整體提高義務教育學校的標準化建設水平,實現更高質量更高水平的優質均衡。

        社會認可度成為優質均衡評估的重要內容

    基本均衡發展督導評估中,公眾對本縣義務教育均衡發展的滿意度只作為評估認定的重要參考,著重考察政府在推進均衡發展方面的政策落實情況和努力程度,目的是增加公眾對教育治理的知情權和參與權,促進公眾積極參與教育治理和對政府的監督。

    在優質均衡發展督導評估中,社會認可度成為評估內容中的一個重要方面。由公眾滿意轉變為社會認可,從評估理念、評估重心、評估目標上,均發生了實質變化。

    從廣度上看,基本均衡階段主要關注的是政府提供教育服務的對象群體,即廣大群眾對政府的服務和努力是否滿意,重在引導政府要轉變治理理念和治理方式,重新調整政府與社會的關系,關注群眾利益、關心群眾需求、關切關系群眾利益的熱點難點問題。

    而優質均衡階段,在政府面向的服務群體和接受評價的范圍上,由群眾擴展到整個社會,更加重視各領域對政府教育治理水平和治理能力的評價。

    從深度上看,基本均衡將群眾是否滿意作為一個參照,突出的是群眾單向對政府治理行為的滿意與否。而優質均衡則更加重視政府及有關職能部門的治理成效,評價標準也由群眾是否“滿意”提升至社會對政府的作為、治理實效是否“認可”。

    政府不僅要令群眾滿意,在此基礎上,更應主動征得更廣域社會范圍對政府轉變教育治理理念、治理方式以及所取得治理成效的認同和認可。

    在此過程中,政府要更加積極主動地與社會進行溝通互動,調動社會力量共同參與協同治理,更好地發揮政府和社會合力,由“共治”達到“善治”。

        由基本均衡到優質均衡,需要政府因地制宜

    作為推進義務教育優質均衡發展的責任主體,各級政府及教育行政部門要切實轉變等靠要的思想,深刻理解把握國家和本省推進義務教育現代化發展的政策要求,先行先試、積極作為,因地制宜探索符合本地義務教育優質均衡發展實際的具體舉措。

    建立資源優化配置機制。《辦法》關于資源配置提出7項評估指標,重點評估學校在教師、校舍、儀器設備等方面的配置水平和校際均衡情況。很多學校的校舍面積不足,生均教學及輔助用房面積、生均體育運動場館面積等達不到評估標準。

    這就需要省級政府科學指導、督促各地超前謀劃,按照新型城鎮化發展、常住人口規模、全面放開二孩后學齡人口預測以及省定辦學標準,及時修訂編制義務教育學校布局規劃,并納入城鎮規劃嚴格實施。

    縣級政府要依法落實城鎮新建居住區配套規劃學校要求,嚴格執行中小學相關設計規范和建設標準,科學測算學位需求,動態分析并科學測算區域內學校教育設施用地的供需狀況,足額預留城鎮新建中小學建設用地等。

    深化教師管理配套改革。《辦法》關于政府保障程度提出15項評估指標,重點評估縣級人民政府依法履職、推進義務教育均衡發展和城鄉一體化的工作成效。其中,有6項指標與深化新時代教師隊伍建設改革有關。現實中,很多學校教師配置不均衡,教師編制缺乏動態管理機制、教師年齡結構學科結構不合理等問題比較突出。

    各地政府應創新管理機制,配備中小學教師。在現有編制總量內,統籌考慮、合理核定教職工編制,盤活事業編制存量,優化中小學教師編制結構、年齡結構和學科結構,采取多種形式增加緊缺教師數量,優先保障教育發展需要。

    完善督導評估監測機制。建立完善的教育督導評估機制是推進義務教育由“基本均衡”走向“優質均衡”的重要抓手。

    省級政府要加強對市縣兩級政府履行教育職責、完成教育目標任務情況進行督導評估,推動市縣兩級政府切實履行教育工作相關職責,提高教育質量,促進教育公平和教育事業協調發展。縣級人民政府要加強對本縣義務教育優質均衡發展狀況的客觀自評,通過自評實現“以評促建”。

    各級政府要以提升教育質量為核心,不斷完善學校辦學條件標準,建立標準健全、目標分層、多級評價、多元參與的教育質量監測評估體系,依法加強對學校規范辦學的督導。

    此外,各級政府要不斷健全第三方評價機制,增強評價的專業性、獨立性和客觀性。同時,要切實強化督導結果的運用,充分發揮督導評估的導向、激勵、診斷、調控與改進功能。

    (作者單位:天津市教育科學研究院教育決策與發展研究所)

    《中國教育報》2019年08月06日第3版 

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