中美中小学教师绩效工资政策比较分析
|
摘要
从政策过程分析视角比较中美中小学教师绩效工资政策的实施背景、范围、资源、路径、成效等的异同,结果发现:美国实施中小学教师绩效工资政策已30年,以促进教师发展、提高学生学业成绩为目标,以增量评估为基础的实施方案,因形式多样、实施经费途径多元、政府和教师团体的价值导向存异等导致推行学校不及半数。中国则从2009年开始实施中小学教师绩效工资政策,从上到下快速全员推进,以提高教师待遇、优绩优酬为目标,实施经费明确,教师对政策接受度更高,但对政策目标及方案的科学性、公平性有异议。两国的教师绩效工资政策综合效益均未达预期目的,需要进行深刻反思与改进。
The performance pay policy is the most noticeable hotspot and difficult issue in the current reform of elementary and secondary education in China and the United States. From the perspective of policy process analysis, this paper compares the similarities and differences in the implementation background, scope, resource, path and effectiveness of the performance pay policies for primary and secondary school teachers in China and the United States, and finds that the performance pay policy in the United States has been implemented for more than 30 years in order to promote teachers' development and improve students' academic performance, the assessment-based implementation plan has been carried out in no more than half schools due to various forms, diversified implementation funding channels, and value-oriented differences between government and teacher groups. In China, the performance pay policy for primary and secondary school teachers has been implemented since 2009. It has been rapidly promoted from top to bottom with the goal of improving teachers' salary and rewards for excellent performance, the implementation funds are clear, teachers have higher policy acceptance, but have objections to the scientific nature and fairness of the policy goal and program. The comprehensive benefits of the teacher performance pay policies in both countries have not achieved the expected goal, which requires profound reflection and improvement.
The performance pay policy is the most noticeable hotspot and difficult issue in the current reform of elementary and secondary education in China and the United States. From the perspective of policy process analysis, this paper compares the similarities and differences in the implementation background, scope, resource, path and effectiveness of the performance pay policies for primary and secondary school teachers in China and the United States, and finds that the performance pay policy in the United States has been implemented for more than 30 years in order to promote teachers' development and improve students' academic performance, the assessment-based implementation plan has been carried out in no more than half schools due to various forms, diversified implementation funding channels, and value-oriented differences between government and teacher groups. In China, the performance pay policy for primary and secondary school teachers has been implemented since 2009. It has been rapidly promoted from top to bottom with the goal of improving teachers' salary and rewards for excellent performance, the implementation funds are clear, teachers have higher policy acceptance, but have objections to the scientific nature and fairness of the policy goal and program. The comprehensive benefits of the teacher performance pay policies in both countries have not achieved the expected goal, which requires profound reflection and improvement.
引文
[1]Stephanie Simon.Object to Change in Pay-for-Performance Plan [J].Wall Street Journal (Eastern Edition),2008,8(18):46-51.
[2]Karthik Muralidharan,Venkatesh Sundararaman.Teacher Performance Pay:Experimental Evidence from India [J].Journal of Political Economy,2011,119(1):39-77.
[3]李沿知.美、英、澳基础教育教师绩效工资制度实施对办学质量的影响分析及启示[J].教师教育研究,2010(4):71-75.
[4]李海燕,李国.美国中小学校教师绩效工资改革的政策学分析[J].比较教育研究,2015(7):24-31.
[5]郝栋峰.美国公立中小学教师绩效工资改革研究[D].重庆:西南大学,2010.
[6]李先军.美国中小学教师绩效工资制度的成功经验及其启示[J].外国教育研究,2013(5):103-111.
[7]Chamberlin R,et al.Performance-related pay and the teaching profession:a review of the literature[J].Research Papers in Education,2002,17(1):31-49.
[8]王大磊.美国教师绩效工资制度及其对我国师资队伍建设的启示[J].外国中小学教育,2009(4):41-45.
[9]关于义务教育学校实施绩效工资的指导意见[EB/OL].(2008-12-23)[2018-12-21].http://www.moe.gov.cn/jyb_xwfb/s6052/moe_838/tnull_42745.html.
[10]王莹,王国辉.奥巴马政府的教师质量提升政策探析[J].河北师范大学学报(教育科学版),2012(3):57-61.
[11]李俊杰.美国绩效工资改革之评析及其对我国绩效工资改革的启示[J].经济师,2011(3):65-66.
[12]王静,洪明.美国公立学校教师工资制度的重大变革[J].教育研究,2007(2):13-17.
[13]Department of Education,U.S.A.Race to the Top—District Technical Review Form[EB/OL].(2012-08-12)[2018-12-21].https://www2.ed.gov/programs/racetothetop-district/2012/dicksoncountyschoolstn.pdf.
[14]教育部.关于做好义务教育学校教师绩效考核工作的指导意见[EB/OL].(2008-12-31)[2018-12-21].http://old.moe.gov.cn//publicfiles/business/htmlfiles/moe/s7051/201412/xxgk_180682.html.
[15]李海燕,邓敏开.大陆义务教育学校教师绩效工资政策的现况、效应及改进对策——基于广东佛山N区的调研分析[J].教育行政论坛,2012(6):43-50.
[16]李琛琛.当代西方学校组织变革模式的三大取向及趋势[J].教学与管理(理论版),2017(1):55-57.
[17]Minnesota Education Department.Q Comp[EB/OL].(2018)[2018-12-20] https://education.mn.gov/MDE/dse/qc/.
[18]李茂.美国澳大利亚试水教师绩效工资制[N].中国教师报,2007-06-27(03).
[19]容中逵.教师绩效工资实施问题及其臻善——基于对浙江省的实地调研[J].中国教育学刊,2012(1):38-41.
[20]李海燕,雷晓云.祖国内地和香港新课改的政策学比较[J].课程·教材·教法,2007(7):83-87.
[21]Sean Kelly,Laura Monczunski.Overcoming the Volatility in School-Level Gain Scores:A New Approach to Identifying Value Added With Cross-Sectional Data,Educational Researcher[J].American Educational Research Association,2007(6/7):279-287.
[22]Hall Gene E,Caffarella Edward,Bartlett Ellen.Assessing Implementation of a Performance Pay Plan for Teachers:Strategies,Findings and Implications [Z].The Annual Meeting of the American Educational Research Association (Chicago,IL),1997:19-26.
[23]Kennedy Greene G,et al.Getting Real:A Different Perspective on the Relationship Between School Resources and Student Outcomes [J].Journal of Education Finance,2007,33(1):49-68.
[24]罗朝猛.美国教师绩效工资改革能否吸引和留住高质教师[N].中国教育报,2012-01-17(03).
[25]陈平,乔锦忠.美国丹佛市公立学校教师绩效工资制度改革研究[J].外国教育研究,2010(4):25-30.
[26]杨国芹.基于工作满意度与积极性的农村高中教师激励机制研究[D].上海:上海师范大学,2010.
[27]张锐.浅谈教师绩效工资的实施与绩效评价标准的构建[J].知识经济,2009(12):149-150.
[28]牟威.美国教师绩效工资制新进展——美国教育政策研究协会关于教师绩效工资制的改革计划[J].世界教育信息,2008(9):36-39.
[29]美国数万教师罢工要求涨薪近50万名学生无课上[EB/OL].(2018-04-04)[2018-12-21].http://www.chinaqw.com/hqhr/2018/04-04/184695.shtml.
[30]于音.美媒:洛杉矶教师将结束抗议,此前三万人罢课求涨薪[N].新京报,2019-01-23(03).
[31]范先佐,付卫东.义务教育教师绩效工资改革:背景、成效、问题与对策——基于对中部4省32县(市)的调查[J].华中师范大学学报(人文社会科学版),2011,50(6):128-137.
[32]杜晓利.我国中小学教师工资水平的比较分析与若干建议[J].中国教育学刊,2015(4):27-31.
[33]付卫东,桂勇.义务教育学校教师绩效工资政策实施效果的实证研究[J].上海教育科研,2010(10):25-28.
[34]郜云雁.教师激励需要多元体系——访美国田纳西州纳什维尔市教育局局长杰西·瑞杰斯特 [EB/OL].(2010-07-13)[2018-12-21].http://edu.163.com/10/0713/09/6BFC0VTB00293L7F.html.
[35]赵德成.绩效工资如何设计才能有效激励教师[J].中国教育学刊,2010(6):32-35.
[36]李海燕,李国.义务教育学校教师绩效工资改革审视[J].当代教师教育,2011(1):11-14,32.
[37]Richard Murnane ,David Cohen.Merit Pay and the Evaluation Problem:Why Most Merit Pay Plans Fail and a Few Survive[J].Harvard Educational Review ,1986,56(1):l-18.
[38]Nick Adnett.Market-based Reforms of Public School:Some Unpleasant Dynamics[J].Economics of Education Review,2003(4):323-330.
[39]马鹰,李晓文.不同教师群体激励因素的比较研究[J].心理科学,2007,30(1):209-211,191.
[40]Ferris J ,Winkler D.Teacher compensation and the supply of teachers[J].Elementary School Journal,1996,86(4):389-403.
[41]安雪慧.义务教育学校教师绩效工资政策效果分析[J].中国教育学刊,2015(11):53-60.
[42]Murnane R J,Olsen R J.The Effects of Salaries and Opportunity Costs on Length of Stay in Teaching:Evidence from North Carolina[J].Journal of Human Resources,1990,25(1):106-124.
[43]Lois Beckett.America’s Most Outrageous Teacher Cheating Scandals [EB/OL].(2011-09-19)[2018-12-21].http://www.propublica.org/article/americas-most-outrageous-teacher-cheating-scandals#atlanta.
[44]李沿知.国外基础教育教师绩效工资改革中的主要争议[J].外国中小学教育,2010(8):30-35.
[45]Dalton B.The landscape of school ratings systems[DB/OL].RTI Press Publication No.OP-0046-1709.Research Triangle Park,NC:RTI Press.https://doi.org/10.3768/rtipress.2017.op.0046.1709.
[46]Denise Creason.Lessons Learned About Implementing Performance-Based Pay[EB/OL].(2015)[2018-12-21].https://www2.ed.gov/admins/tchrqual/performance/pay-performance.pdf.
[47]马利.绩效工资激化三大矛盾[EB/OL].(2011-12-19)[2018-12-21].http://roll.sohu.com/20111219/n329428132.shtml.
[48]Jordan H R,Mendro R,Weerasinghe D.Teacher effects on longitudinal student achievement:A preliminary report on research on teacher effectiveness[M].Kalamazoo:Western Michigan University,1997.
[49]Wright S P,Horn S P,Sanders W L.Teacher and classroom context effects on student achievement:Implications for teacher evaluation[J].Journal of personnel evaluation in education,1997,11(1):57-67.
[50]Julie A Marsh,et al.A Big Apple for Educators,New York City’s Experiment with Schoolwide Performance Bonuses:Final Evaluation Report [EB/OL].(2013-01)[2018-12-21].https://eric.ed.gov/?id=ED521920.
[51]米锦平,代建军.当前我国中小学教师绩效评价的问题与反思[J].教育科学研究,2011(7):37-40.
[52]宁本涛.教师绩效工资实施的弱激励效应分析——以西部Q市Y区为例[J].中国教育学刊,2014(4):90-93.
[53]Adele Atkinson,et al.Evaluating the impact of performance-related pay for teachers in England[J].Labour Economics,2009,16(3):251-261.
[54]李萍,盘宇章,吕荣.义务教育学校绩效工资改革的经济学分析——基于委托一代理理论的分析框架[J].经济理论与经济管理,2010,2(2):52-58.
[2]Karthik Muralidharan,Venkatesh Sundararaman.Teacher Performance Pay:Experimental Evidence from India [J].Journal of Political Economy,2011,119(1):39-77.
[3]李沿知.美、英、澳基础教育教师绩效工资制度实施对办学质量的影响分析及启示[J].教师教育研究,2010(4):71-75.
[4]李海燕,李国.美国中小学校教师绩效工资改革的政策学分析[J].比较教育研究,2015(7):24-31.
[5]郝栋峰.美国公立中小学教师绩效工资改革研究[D].重庆:西南大学,2010.
[6]李先军.美国中小学教师绩效工资制度的成功经验及其启示[J].外国教育研究,2013(5):103-111.
[7]Chamberlin R,et al.Performance-related pay and the teaching profession:a review of the literature[J].Research Papers in Education,2002,17(1):31-49.
[8]王大磊.美国教师绩效工资制度及其对我国师资队伍建设的启示[J].外国中小学教育,2009(4):41-45.
[9]关于义务教育学校实施绩效工资的指导意见[EB/OL].(2008-12-23)[2018-12-21].http://www.moe.gov.cn/jyb_xwfb/s6052/moe_838/tnull_42745.html.
[10]王莹,王国辉.奥巴马政府的教师质量提升政策探析[J].河北师范大学学报(教育科学版),2012(3):57-61.
[11]李俊杰.美国绩效工资改革之评析及其对我国绩效工资改革的启示[J].经济师,2011(3):65-66.
[12]王静,洪明.美国公立学校教师工资制度的重大变革[J].教育研究,2007(2):13-17.
[13]Department of Education,U.S.A.Race to the Top—District Technical Review Form[EB/OL].(2012-08-12)[2018-12-21].https://www2.ed.gov/programs/racetothetop-district/2012/dicksoncountyschoolstn.pdf.
[14]教育部.关于做好义务教育学校教师绩效考核工作的指导意见[EB/OL].(2008-12-31)[2018-12-21].http://old.moe.gov.cn//publicfiles/business/htmlfiles/moe/s7051/201412/xxgk_180682.html.
[15]李海燕,邓敏开.大陆义务教育学校教师绩效工资政策的现况、效应及改进对策——基于广东佛山N区的调研分析[J].教育行政论坛,2012(6):43-50.
[16]李琛琛.当代西方学校组织变革模式的三大取向及趋势[J].教学与管理(理论版),2017(1):55-57.
[17]Minnesota Education Department.Q Comp[EB/OL].(2018)[2018-12-20] https://education.mn.gov/MDE/dse/qc/.
[18]李茂.美国澳大利亚试水教师绩效工资制[N].中国教师报,2007-06-27(03).
[19]容中逵.教师绩效工资实施问题及其臻善——基于对浙江省的实地调研[J].中国教育学刊,2012(1):38-41.
[20]李海燕,雷晓云.祖国内地和香港新课改的政策学比较[J].课程·教材·教法,2007(7):83-87.
[21]Sean Kelly,Laura Monczunski.Overcoming the Volatility in School-Level Gain Scores:A New Approach to Identifying Value Added With Cross-Sectional Data,Educational Researcher[J].American Educational Research Association,2007(6/7):279-287.
[22]Hall Gene E,Caffarella Edward,Bartlett Ellen.Assessing Implementation of a Performance Pay Plan for Teachers:Strategies,Findings and Implications [Z].The Annual Meeting of the American Educational Research Association (Chicago,IL),1997:19-26.
[23]Kennedy Greene G,et al.Getting Real:A Different Perspective on the Relationship Between School Resources and Student Outcomes [J].Journal of Education Finance,2007,33(1):49-68.
[24]罗朝猛.美国教师绩效工资改革能否吸引和留住高质教师[N].中国教育报,2012-01-17(03).
[25]陈平,乔锦忠.美国丹佛市公立学校教师绩效工资制度改革研究[J].外国教育研究,2010(4):25-30.
[26]杨国芹.基于工作满意度与积极性的农村高中教师激励机制研究[D].上海:上海师范大学,2010.
[27]张锐.浅谈教师绩效工资的实施与绩效评价标准的构建[J].知识经济,2009(12):149-150.
[28]牟威.美国教师绩效工资制新进展——美国教育政策研究协会关于教师绩效工资制的改革计划[J].世界教育信息,2008(9):36-39.
[29]美国数万教师罢工要求涨薪近50万名学生无课上[EB/OL].(2018-04-04)[2018-12-21].http://www.chinaqw.com/hqhr/2018/04-04/184695.shtml.
[30]于音.美媒:洛杉矶教师将结束抗议,此前三万人罢课求涨薪[N].新京报,2019-01-23(03).
[31]范先佐,付卫东.义务教育教师绩效工资改革:背景、成效、问题与对策——基于对中部4省32县(市)的调查[J].华中师范大学学报(人文社会科学版),2011,50(6):128-137.
[32]杜晓利.我国中小学教师工资水平的比较分析与若干建议[J].中国教育学刊,2015(4):27-31.
[33]付卫东,桂勇.义务教育学校教师绩效工资政策实施效果的实证研究[J].上海教育科研,2010(10):25-28.
[34]郜云雁.教师激励需要多元体系——访美国田纳西州纳什维尔市教育局局长杰西·瑞杰斯特 [EB/OL].(2010-07-13)[2018-12-21].http://edu.163.com/10/0713/09/6BFC0VTB00293L7F.html.
[35]赵德成.绩效工资如何设计才能有效激励教师[J].中国教育学刊,2010(6):32-35.
[36]李海燕,李国.义务教育学校教师绩效工资改革审视[J].当代教师教育,2011(1):11-14,32.
[37]Richard Murnane ,David Cohen.Merit Pay and the Evaluation Problem:Why Most Merit Pay Plans Fail and a Few Survive[J].Harvard Educational Review ,1986,56(1):l-18.
[38]Nick Adnett.Market-based Reforms of Public School:Some Unpleasant Dynamics[J].Economics of Education Review,2003(4):323-330.
[39]马鹰,李晓文.不同教师群体激励因素的比较研究[J].心理科学,2007,30(1):209-211,191.
[40]Ferris J ,Winkler D.Teacher compensation and the supply of teachers[J].Elementary School Journal,1996,86(4):389-403.
[41]安雪慧.义务教育学校教师绩效工资政策效果分析[J].中国教育学刊,2015(11):53-60.
[42]Murnane R J,Olsen R J.The Effects of Salaries and Opportunity Costs on Length of Stay in Teaching:Evidence from North Carolina[J].Journal of Human Resources,1990,25(1):106-124.
[43]Lois Beckett.America’s Most Outrageous Teacher Cheating Scandals [EB/OL].(2011-09-19)[2018-12-21].http://www.propublica.org/article/americas-most-outrageous-teacher-cheating-scandals#atlanta.
[44]李沿知.国外基础教育教师绩效工资改革中的主要争议[J].外国中小学教育,2010(8):30-35.
[45]Dalton B.The landscape of school ratings systems[DB/OL].RTI Press Publication No.OP-0046-1709.Research Triangle Park,NC:RTI Press.https://doi.org/10.3768/rtipress.2017.op.0046.1709.
[46]Denise Creason.Lessons Learned About Implementing Performance-Based Pay[EB/OL].(2015)[2018-12-21].https://www2.ed.gov/admins/tchrqual/performance/pay-performance.pdf.
[47]马利.绩效工资激化三大矛盾[EB/OL].(2011-12-19)[2018-12-21].http://roll.sohu.com/20111219/n329428132.shtml.
[48]Jordan H R,Mendro R,Weerasinghe D.Teacher effects on longitudinal student achievement:A preliminary report on research on teacher effectiveness[M].Kalamazoo:Western Michigan University,1997.
[49]Wright S P,Horn S P,Sanders W L.Teacher and classroom context effects on student achievement:Implications for teacher evaluation[J].Journal of personnel evaluation in education,1997,11(1):57-67.
[50]Julie A Marsh,et al.A Big Apple for Educators,New York City’s Experiment with Schoolwide Performance Bonuses:Final Evaluation Report [EB/OL].(2013-01)[2018-12-21].https://eric.ed.gov/?id=ED521920.
[51]米锦平,代建军.当前我国中小学教师绩效评价的问题与反思[J].教育科学研究,2011(7):37-40.
[52]宁本涛.教师绩效工资实施的弱激励效应分析——以西部Q市Y区为例[J].中国教育学刊,2014(4):90-93.
[53]Adele Atkinson,et al.Evaluating the impact of performance-related pay for teachers in England[J].Labour Economics,2009,16(3):251-261.
[54]李萍,盘宇章,吕荣.义务教育学校绩效工资改革的经济学分析——基于委托一代理理论的分析框架[J].经济理论与经济管理,2010,2(2):52-58.