当代美国农村中小学合并研究
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摘要
世界各国在发展农村教育过程中,遇到最为突出的问题就是公平与效率问题。如何既能保证农村学生公平地接受教育,又能提高农村学校的办学效率,是一个亟需解决的问题。如今,随着城市化的发展进程,学生入学率的下降以及财政经费政策的变化,各国大都通过“合并”来实现农村中小学布局的调整,并将其视为解决农村教育问题的一个重要途径。作为一个早发的现代化国家,美国农村中小学合并前后经历了100余年的时间,至今仍在继续,它基本上是按照自然演进的逻辑顺序展开的,但其道路并不平坦,一路伴随着民众的批判与反对声音前行。在思考和研究我国农村学校合并过程中遇到的问题时,回顾美国农村中小学合并的发展进程,借鉴其成功经验,对我国科学合理地稳步推进农村中小学合并,办让农民满意的农村基础教育具有重要的启示意义。
在整个20世纪,美国农村中小学合并在规模经济的指导下作为丰富课程设置、扩大教育机会的途径得到了大力推进,并且在21世纪初作为一种成功典范继续实施。美国农村中小学合并的原因是多方面的,其中主要基于四个方面的原因：城市化发展的必然结果；农村社区面临严峻挑战的自然选择；农村学校发展困境的客观要求：工业化和经济发展的需求。在现阶段,美国多数州和地区通过立法以及财政拨款等多种形式促使农村学校进行合并。在实施过程中,各州相应地制定了详细的合并标准规范着合并活动,以法令的形式加强对农村学校合并过程的控制,并为合并的顺利推进提供了一系列的保障措施。与此同时,也有一小部分州不鼓励合并,把农村学校或学区合并的决定权留给地方教育委员会以及农村社区居民,通过改善农村学校的办学条件,支持小规模农村学校。
在美国,一旦农村中小学合并被认定为是解决农村教育问题、提高农村教育质量、以及缓解财政压力的可行性方案,就需要采取一系列有效策略诸如基于不同利益群体的策略、教师专业化发展策略以及校车学习计划等,确保合并的顺利实施。在具体实践中,美国农村中小学合并在提高农村学校的规模效益、促进农村中小学教育质量的提高、减轻教师的教学工作负担以及促进教育均衡发展等方面取得了一定成效。但同时也存在一些问题,诸如难以捉摸的效率、部分学生的学业成绩有所下降、交通问题突出等。因此,农村中小学合并的替代性方案作为既能解决农村固有问题又可以避免合并带来的消极影响的折衷方案应运而生。
从19世纪中后期开始至今,美国农村学校合并一直就是政策制定者、学校管理者、农村居民及社区争论的话题。合并的支持者从大规模学校的优势以及实用性的目的积极地倡导农村中小学合并,而合并的反对者主要从经济角度、小规模学校的优势以及农村学校对社区的价值三个维度对合并持否定态度。美国农村中小学合并出现争论不断的原因,主要是由于在合并过程中存在不同利益集团之间的利益冲突,以及合并学区与独立学区各有所长。在激烈争论的背后,应正确认识到学校规模的适宜性以及公平优先兼顾效率。
可以说,美国农村中小学合并积累了长时间的实践经验：坚持在教育公平的前提下追求规模效益；合并是一个逐步完善、漫长的探索过程；决策程序的公正性是农村中小学合并的重要前提；完善的制度保障是农村中小学合并缺一不可的条件。我国农村中小学合并产生的条件和背景与美国农村中小学合并有很大相似之处,如都是在城市化进程的推动下,农村地区面临人口、经济的持续衰退,农村教育的发展处于困境之中,等等。其目的都是为了追求办学的规模效益与教育的均衡发展。相比美国农村中小学合并而言,由于我国与之相关的制度和管理体制还不够完善,以及各地区差异巨大等特殊国情,造成在合并过程中遇到的困难与阻碍更多。因此,应适当借鉴美国在农村中小学合并中取得的经验以及教训,并在此基础上结合我国国情和社会文化传统,使我国农村中小学合并朝向合理而健康的方向发展。
In the process of the development of the rural education in all over the world, the most prominent problem is the fairness and efficiency. How to ensure to accept the education fairly for rural students and improve the efficiency of the rural school is a problem to be solved immediately. Nowadays, with the development of urbanization process, the declining in student enrollment and changing in financial funding policy, Every country mostly through the "consolidation " to achieve the rearrangement of rural elementary and secondary schools. And it is an important way to solve the problems of rural education. As a modern country, the consolidation of the U.S. Rural Schools has experienced more than one hundred years, now still continuing. It is basically carried out in accordance with the natural evolution of the logical sequence. But the "way" is not flat, all the ways along the line before the public criticism and dissenting voices. When we reflect and research on our rural school consolidation process, we can recall the development process of the consolidation of rural elementary and secondary schools in the U.S., and learn from the successful experience. It is very important implications that China's scientific and reasonable to promote the consolidation of rural schools and run rural basic education for peasant satisfaction.
Throughout the20th century, consolidation of rural elementary and secondary schools in the United States has been actively developed as enriching the curriculum under the economies of scale and expanding educational opportunities. It was mainly based on four reasons:the inevitable result of Urbanization, the natural selection of rural communities facing serious challenges, the objective requirements of the rural school development predicament, the demand of industrialization and economic development. At this stage, the majority states and areas in U.S. through legislation and financial allocation in various forms to promote consolidation of rural schools. In the implementation, every state developed the detailed consolidation standard to regulate consolidation activity, strengthened the control of the rural school consolidation process with the Act, and provided a series of protection measures for consolidation smoothly. At the same time, a small part of the states do not encourage consolidation. The power of decision for rural school or district consolidation is left to the local Board of Education and rural communities. And support for small-scale rural schools through improving the conditions for running schools in rural area.
In the United States, once the consolidation of rural elementary and secondary schools have been identified as the feasible scheme, a series of effective strategies need to be taken to ensure the smooth implementation of the consolidation, such as the strategies based on the different interest groups, teachers' professional development strategies as well as the school bus learning program. In practice, the consolidation of rural elementary and secondary schools achieved certain results, such as improving the scale effect of rural schools, promoting the education quality of primary and secondary school in rural areas, alleviating the workload of teachers teaching and promoting the balanced development of education. But there are some problems, such as efficiency, the declining of some students' academic performance and traffic problems. Therefore, the alternative program of rural schools consolidation will be emerged. It not only solves the inherent problems in rural areas, but also can avoid the negative impact of the consolidation.
Since the starting in the late19th century, American rural school consolidation has been the controversial topic of policy makers, school administrators, rural residents and communities. Supporters advocate the consolidation in rural elementary and secondary schools from the advantage of large-scale school and the practical purpose. Opponents have the negative attitude from an economic point of view, the advantages of small-scale rural schools and the value of community. The reasons of controversy about rural elementary and secondary schools consolidation, it mainly due to the existence of the interest conflict between the different interest groups in the consolidation process, and the consolidated school district and the independent school districts have their own strengths. Behind in the heated debate, a correct understanding should be recognized the suitability of school size and equity priority and efficiency consideration.
As it were, the experience of American rural elementary and secondary schools consolidation can be gained from in the pursuit of scale benefit under educational equity; Consolidation is gradually improving, the long process of exploration; Fairness of the decision-making process is an important prerequisite for the consolidation of rural elementary and secondary schools; Comprehensive system guarantee is indispensable conditions for the consolidation of rural elementary and secondary schools. Conditions and background of our rural primary and secondary schools consolidation and American rural primary and secondary schools consolidation has great similarities. For example, they were driven by urbanization, the rural areas are facing the population and the continuing economic recession, the development of rural education is in trouble, and so on. Its purpose is to pursue the balanced development of the scale education. Compared to the American rural primary and secondary consolidation, because of our system and management are not perfect, and the huge differences in various regions, so it is caused by the difficulties encountered in the process of consolidation. Therefore, we should be appropriate to draw on the experience and lessons in American rural primary and secondary schools consolidation. On this basis, we should combine with China's national conditions and cultural traditions, and we will make the rural primary and secondary schools consolidation in China toward reasonable and healthy.
在整个20世纪,美国农村中小学合并在规模经济的指导下作为丰富课程设置、扩大教育机会的途径得到了大力推进,并且在21世纪初作为一种成功典范继续实施。美国农村中小学合并的原因是多方面的,其中主要基于四个方面的原因：城市化发展的必然结果；农村社区面临严峻挑战的自然选择；农村学校发展困境的客观要求：工业化和经济发展的需求。在现阶段,美国多数州和地区通过立法以及财政拨款等多种形式促使农村学校进行合并。在实施过程中,各州相应地制定了详细的合并标准规范着合并活动,以法令的形式加强对农村学校合并过程的控制,并为合并的顺利推进提供了一系列的保障措施。与此同时,也有一小部分州不鼓励合并,把农村学校或学区合并的决定权留给地方教育委员会以及农村社区居民,通过改善农村学校的办学条件,支持小规模农村学校。
在美国,一旦农村中小学合并被认定为是解决农村教育问题、提高农村教育质量、以及缓解财政压力的可行性方案,就需要采取一系列有效策略诸如基于不同利益群体的策略、教师专业化发展策略以及校车学习计划等,确保合并的顺利实施。在具体实践中,美国农村中小学合并在提高农村学校的规模效益、促进农村中小学教育质量的提高、减轻教师的教学工作负担以及促进教育均衡发展等方面取得了一定成效。但同时也存在一些问题,诸如难以捉摸的效率、部分学生的学业成绩有所下降、交通问题突出等。因此,农村中小学合并的替代性方案作为既能解决农村固有问题又可以避免合并带来的消极影响的折衷方案应运而生。
从19世纪中后期开始至今,美国农村学校合并一直就是政策制定者、学校管理者、农村居民及社区争论的话题。合并的支持者从大规模学校的优势以及实用性的目的积极地倡导农村中小学合并,而合并的反对者主要从经济角度、小规模学校的优势以及农村学校对社区的价值三个维度对合并持否定态度。美国农村中小学合并出现争论不断的原因,主要是由于在合并过程中存在不同利益集团之间的利益冲突,以及合并学区与独立学区各有所长。在激烈争论的背后,应正确认识到学校规模的适宜性以及公平优先兼顾效率。
可以说,美国农村中小学合并积累了长时间的实践经验：坚持在教育公平的前提下追求规模效益；合并是一个逐步完善、漫长的探索过程；决策程序的公正性是农村中小学合并的重要前提；完善的制度保障是农村中小学合并缺一不可的条件。我国农村中小学合并产生的条件和背景与美国农村中小学合并有很大相似之处,如都是在城市化进程的推动下,农村地区面临人口、经济的持续衰退,农村教育的发展处于困境之中,等等。其目的都是为了追求办学的规模效益与教育的均衡发展。相比美国农村中小学合并而言,由于我国与之相关的制度和管理体制还不够完善,以及各地区差异巨大等特殊国情,造成在合并过程中遇到的困难与阻碍更多。因此,应适当借鉴美国在农村中小学合并中取得的经验以及教训,并在此基础上结合我国国情和社会文化传统,使我国农村中小学合并朝向合理而健康的方向发展。
In the process of the development of the rural education in all over the world, the most prominent problem is the fairness and efficiency. How to ensure to accept the education fairly for rural students and improve the efficiency of the rural school is a problem to be solved immediately. Nowadays, with the development of urbanization process, the declining in student enrollment and changing in financial funding policy, Every country mostly through the "consolidation " to achieve the rearrangement of rural elementary and secondary schools. And it is an important way to solve the problems of rural education. As a modern country, the consolidation of the U.S. Rural Schools has experienced more than one hundred years, now still continuing. It is basically carried out in accordance with the natural evolution of the logical sequence. But the "way" is not flat, all the ways along the line before the public criticism and dissenting voices. When we reflect and research on our rural school consolidation process, we can recall the development process of the consolidation of rural elementary and secondary schools in the U.S., and learn from the successful experience. It is very important implications that China's scientific and reasonable to promote the consolidation of rural schools and run rural basic education for peasant satisfaction.
Throughout the20th century, consolidation of rural elementary and secondary schools in the United States has been actively developed as enriching the curriculum under the economies of scale and expanding educational opportunities. It was mainly based on four reasons:the inevitable result of Urbanization, the natural selection of rural communities facing serious challenges, the objective requirements of the rural school development predicament, the demand of industrialization and economic development. At this stage, the majority states and areas in U.S. through legislation and financial allocation in various forms to promote consolidation of rural schools. In the implementation, every state developed the detailed consolidation standard to regulate consolidation activity, strengthened the control of the rural school consolidation process with the Act, and provided a series of protection measures for consolidation smoothly. At the same time, a small part of the states do not encourage consolidation. The power of decision for rural school or district consolidation is left to the local Board of Education and rural communities. And support for small-scale rural schools through improving the conditions for running schools in rural area.
In the United States, once the consolidation of rural elementary and secondary schools have been identified as the feasible scheme, a series of effective strategies need to be taken to ensure the smooth implementation of the consolidation, such as the strategies based on the different interest groups, teachers' professional development strategies as well as the school bus learning program. In practice, the consolidation of rural elementary and secondary schools achieved certain results, such as improving the scale effect of rural schools, promoting the education quality of primary and secondary school in rural areas, alleviating the workload of teachers teaching and promoting the balanced development of education. But there are some problems, such as efficiency, the declining of some students' academic performance and traffic problems. Therefore, the alternative program of rural schools consolidation will be emerged. It not only solves the inherent problems in rural areas, but also can avoid the negative impact of the consolidation.
Since the starting in the late19th century, American rural school consolidation has been the controversial topic of policy makers, school administrators, rural residents and communities. Supporters advocate the consolidation in rural elementary and secondary schools from the advantage of large-scale school and the practical purpose. Opponents have the negative attitude from an economic point of view, the advantages of small-scale rural schools and the value of community. The reasons of controversy about rural elementary and secondary schools consolidation, it mainly due to the existence of the interest conflict between the different interest groups in the consolidation process, and the consolidated school district and the independent school districts have their own strengths. Behind in the heated debate, a correct understanding should be recognized the suitability of school size and equity priority and efficiency consideration.
As it were, the experience of American rural elementary and secondary schools consolidation can be gained from in the pursuit of scale benefit under educational equity; Consolidation is gradually improving, the long process of exploration; Fairness of the decision-making process is an important prerequisite for the consolidation of rural elementary and secondary schools; Comprehensive system guarantee is indispensable conditions for the consolidation of rural elementary and secondary schools. Conditions and background of our rural primary and secondary schools consolidation and American rural primary and secondary schools consolidation has great similarities. For example, they were driven by urbanization, the rural areas are facing the population and the continuing economic recession, the development of rural education is in trouble, and so on. Its purpose is to pursue the balanced development of the scale education. Compared to the American rural primary and secondary consolidation, because of our system and management are not perfect, and the huge differences in various regions, so it is caused by the difficulties encountered in the process of consolidation. Therefore, we should be appropriate to draw on the experience and lessons in American rural primary and secondary schools consolidation. On this basis, we should combine with China's national conditions and cultural traditions, and we will make the rural primary and secondary schools consolidation in China toward reasonable and healthy.
引文
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