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农业转移人口随迁子女义务教育供给模式研究
中文摘要

伴随着人口迁移规模的不断壮大,我国随迁子女的规模也在不断壮大,带来的直接问题就是随迁子女义务教育问题。解决随迁子女义务教育问题,从居民家庭单位来看,有利于提高居民生活水平与幸福感,保障随迁子女的基本教育需求,提高家庭的人力资本水平;从社会效应来看,对于社会的人力资本积累和长治久安均有长远意义。然而随迁子女义务教育仍然存在公办学校入学门槛较高、公办学校学位不足、农民工子弟学校基础设施和师资力量薄弱、教学质量低下等问题,使得随迁子女在教育公平上仍然面临入学机会和教育质量的不公平。2014年国家《新型城镇化规划》中明确指出要积极采用政府购买服务等,保障随迁子女接受义务教育的机会。我国当前随迁子女义务教育供给模式现状如何,到底存在什么样的问题,为什么要倡导政府购买教育服务的方式?我国地方有哪些实践经验?这些地方实践反映出哪些问题?面对这些问题,本论文围绕农业转移人口随迁子女义务教育供给问题展开研究,不仅有利于保障随迁子女平等接受教育的权利,同时对于扩大我国政府购买服务的规模,实现服务型政府的转型都至关重要。 从教育需求方的角度来看,我们有必要从动态上把握我国随迁子女的未来趋势。随迁子女的规模主要取决于两个因素:一是流动人口的规模,因为随迁子女主要是伴随家庭或父母流动而诞生的;二是流动人口子女随迁的比例。针对流动人口的分析我们发现,流动人口的稳定性不断增强,家庭化迁移的趋势愈加明显,这意味着未来我国随迁子女的规模将不断增大。针对流动人口子女随迁的比例,我们利用北京大学家庭追踪调查数据分析了流动入口子女随迁与否的影响因素,发现户籍门槛越高,子女随迁的比例越低。这意味着随着我国户籍制度改革的不断深入,未来子女随迁的比例有望进一步提高。从教育需求方的分析,我们应该认识到未来随迁子女规模的不断扩大,同时也应该注意到随迁子女的规模会受到国家政策的影响,其动态波动性会对义务教育供给模式的选择产生影响。 从我国随迁子女义务教育供给模式来看,主要有三种形式:政府供给(公办学校)、市场供给(农民工子弟学校)、政府购买教育服务这三种形式。虽然我国政府供给方式逐渐成为主流,然而供给模式具有明显的地域差异,既有北京市以公办学校为主的政府供给模式,同时有上海市的公办学校为主、政府购买服务支持民办学校的多元化供给模式,也有广州市的以民办学校为主、政府购买服务逐步介入的市场供给模式。当前单纯的政府供给和市场供给模式都存在问题。由于我国政府供给能力和供给意愿不足导致公办学校学位紧张,不能满足所有随迁子女的教育需要,因此公办学校往往会设置较高的入学门槛,导致了入学机会的不公平,我们利用2007年和2008年的CHIPS数据发现户籍性质对于进入公办学校具有显著的影响,同时也会显著影响进入高质量学校的机会。这意味着公办学校入学仍存在显著的户籍门槛。另外单纯的市场供给也存在问题。由于政府财政支持不足,民办学校教学质量较低,这不利于教育质量的公平。通过分析不同类型学校与学生成绩的关系,我们发现就读公办学校还是民办学校对学生成绩没有显著的影响,然而就读高质量学校学生的成绩显著高于就读低质量学生的成绩。我们的数据显示,公办学校质量较高的比例明显高于低质量学校的比例。这意味着我国当前民办学校质量普遍较低,对于随迁子女的学业产生了不利影响,影响着教育质量公平的实现。 总结我国政府购买教育服务的经验,目前主要有两种,一是直接补贴学生,主要有各地试点较为广泛的教育券制度;二是直接补贴给学校,典型案例是上海和广东东莞市的购买学位和购买教育管理、购买评估服务等。然而从我国目前的实践来看,我国随迁子女政府购买教育服务仍然存在以下问题:一是提供教育服务的社会组织发育不足;二是购买教育服务制度安排缺失;三是平衡利益冲突难度较大;四是政府监管能力亟待提升。 不管是政府供给还是政府购买教育服务,政府提供都是当中不可或缺的因素,而这与义务教育财政体制息息相关。本文利用2009-2015年我国地级及以上城市的面板数据分析了人口流动和财政分权对我国教育财政支出的影响,发现流动人口规模显著降低了人均财政教育支出。这意味着流动人口的大量涌入会冲击传统的教育财政,也意味着在我国当前以户籍为基础的教育分配机制下随迁子女的教育权益得不到合理的保障。通过对比分析接受委托的民办学校的采购额和公办学校的生均补贴额,我们发现当前采用政府购买教育服务的模式有利于降低成本,减轻政府的财政压力。当前不利于保障随迁子女义务教育权利的财政体制障碍主要有两个:一是各级政府的财政支出责任划分不合理,中央和省级政府的责任分担不够;二是财政对于民办学校的支持远远不足。 结合国外教育券、委托管理和“公校私营”和购买学位等相关经验,本文提出了随迁子女政府购买教育服务的政策建议,一是政府购买服务的体制构建:从政府购买学位来看,一方面完善购买学位的政策体系,另一方面建立资源共享机制;从购买管理和评估制度来看,建立民主决策机制、构建社会组织数据库和购买管理的政策体系;从教育券制度来看,政策目标应重在实现教育公平,建立完整的配套政策体系。二是义务教育财政体制改革:建立以流入省市政府为主的经费分担机制;完善随迁子女就读民办学校的财政支持机制。三是配套政策改革:解绑户籍附加的教育福利功能;建立学生学籍信息管理系统。 关键词:农业转移人口;随迁子女;义务教育;供给模式

英文摘要

With the growing size of the migrant population, the size of migrant children in China is increasing rapidly, and the direct problem is the provision of compulsory education. To solve the problem, from the family unit, it is beneficial to improve the living standard and happiness of the residents, to guarantee the basic educational needs of the children and to improve the human capital level of the family. In terms of the whole society, it is of significance for the accumulation of human capital in the long term and social stability. However, there still exists many problems for provision of compulsory education for migrant children, such as high entrance threshold of public schools, lack of public school degrees, low education quality of school of migrant laborer’s children and so on. In 2014, the national new urbanization plan clearly pointed out that the government should purchase services to ensure that the children of migrant workers receive compulsory education. What is the current situation of the compulsory education supply mode of migrant children in China? What are the problems? Why should we advocate the way of government purchasing educational services? What kind of practical experience do we have in our country? What are the problems reflected in the practice? In the face of these problems, this paper focuses on the issue of the supply of compulsory education for migrant children of rural migrant workers, which is not only conducive to ensuring the equal rights of children to receive education, but also is crucial to the expansion of the scale of the government purchasing and the transformation of service-oriented government. From the perspective of educational demand side, it is necessary for us to grasp the future trend of children in China in a dynamic way. The size of migrant children depends mainly on two factors: one is the size of the floating population, because migrant children come into being because of the flow of families or parents, and the second is the proportion of families which migrating with children. According to the analysis of the floating population, we find that the stability of the floating population is increasing, and the trend of family migration is becoming more and more obvious, which means that the size of migrant children in our country will increase continuously in the future. According to the proportion of migrant children, we use the data of home tracking survey in Peking University to analyze the factors that affect the migration of the children of the floating population. The higher the household registration threshold is, the lower the proportion of the children to move. This means that with the deepening of the reform of household registration system, the proportion of migrant children in the future is expected to increase. On the one hand, we should realize that the size of migrant children in the future is expanding, and it should also be noted that the size of migrant children will be affected by the national policy, and the dynamic volatility will affect the choice of the supply mode of compulsory education. In terms of the supply mode of compulsory education for children in China, there are mainly three forms: government supply (public school), market supply (school of migrant laborers’ children) and the government purchase of education services. Although government supply gradually becomes the mainstream, the supply mode has obvious regional differences, for example, government supply mode based on public schools in Beijing, the diversified supply mode of government purchasing services to support the private schools and public schools in Shanghai, and the market supply mode in Guangzhou. The current government supply or market supply have problems. Due to the shortage of government supply capacity and supply willingness, capacity of public schools is insufficient, and the educational needs of all migrant children are not satisfied. Therefore, public schools tend to set higher entrance threshold, which leads to the unfairness of entrance opportunities. We use the CHIPS data of 2007 and 2008 to find the household registration has a significant impact on entering public schools, but also significantly affects the opportunity to enter high-quality schools. This means that there is still a significant threshold for public school enrollment. In addition, market supply also has problems. Because of the lack of government financial support, the quality of teaching in private schools is relatively low, which is not conducive to the fairness of educational quality. Through the analysis of the relationship between different types of schools and students′ achievement, we find that entering public school or private school has no significant impact on the students′ achievement. However, the scores of students studying in high quality schools are significantly higher than those of low quality schools. The proportion of high quality schools in public schools is significantly higher than that of private schools. This means that the quality of private schools in China is generally low, which has a negative impact on scores of children, and affects the realization of fairness in educational quality. To sum up the experience of our government to purchase education services, there are two main kinds of education. One is directly subsidizing students, such as education vouchers in different places; the two is directly subsidized to the school. The typical cases are purchasing degrees, education management and evaluation service in Shanghai and Dongguan in Guangdong. However, from the current practice of our country, the following problems still exist in the purchase of educational services: firstly, the social organizations that provide educational services are not fully developed ; secondly, the arrangement of the educational service system is imperfect; thirdly, there exists the difficulty of balancing the conflict of interests; and fourthly the supervision ability of the government needs to be improved urgently. Whether it is government supply or government purchase of education services, government supply is an indispensable factor, which is closely related to the compulsory education financial system. Using the panel data of 2009-2015 years in China and above, this paper analyses the influence of the size of floating population and fiscal decentralization on government′s educational expenditure, and finds that the size of the floating population significantly reduces the per capita financial education expenditure, which means that a large influx of floating population will impact the government education finance, and also means that children's educational rights and interests are not guaranteed properly. Through the comparison and analysis of the purchasing price of the commissioned private schools and the average subsidy amount of the public schools, we find that the current mode of government purchasing educational services is conducive to reducing the cost and alleviating the financial pressure of the government. At present, there are two main financial obstacles to protect the rights of receiving compulsory education for migrant children. One is that the division of the government′s fiscal expenditure is not reasonable, the responsibility of the central and provincial governments is relatively low; and the two is that the financial support for the private schools is far from enough. Combining with experience of education voucher, entrustment management and "privately-owned public schools" and purchasing degree in foreign countries, this paper puts forward the policy proposals for the purchase of educational services by the government of migrant children: firstly, constructing the government purchasing service schemes; secondly, transform the financial system of compulsory education: the establishment of the fund sharing mechanism and the improvement of the financial support mechanism for the children in private schools. Thirdly, we should promote supporting policy reform. Keyword: rural migrant workers; migrant children; compulsory education; supply pattern

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