农村地区学前教育三年行动计划实施的有效性研究——以河北省N县为例

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摘要

学前教育是一项重要的社会公益事业，但当前我国“入园难”、“入园贵”问

题突出，为此国家在《关于当前发展学前教育的若干意见》中提出在 2011 年到2013

年期间要以县为单位实施学前教育三年行动计划（以下简称行动计划），促进当地

尤其是农村地区学前教育发展。但行动计划在各个县实施的情况怎么样？农村地

区学前教育是否得到了较大发展？本文以行动计划在某个县农村地区实施的有效

性为研究重点，选择河北省 N县作为个案研究对象，通过了解 N县农村地区行动

计划实施的情况及遇到的问题，对行动计划实施低效的原因进行分析，提出能促

进农村地区行动计划更有效实施的政策建议。

本文在对准公共物品供给理论、学前教育外部性理论、学前教育成本分担理

论、政府间财政支出责任划分理论、公共政策绩效评价理论的研究基础之上，提

出了本文所要研究的“有效性”的内涵，为本文的案例研究部分做好理论铺垫，

并尝试性的对行动计划实施的有效性的评价框架作了理论梳理。

本文重点部分采用“自下而上”的研究思路，运用分层抽样的方法，在N县

城区、N县某大村、N县某小村分别选取幼儿园作为调查对象，调查结果显示行

动计划的实施是低效的。究其原因有学前教育相关配套法律法规缺失，不能保障

学前教育政策执行；政府对民办幼儿园缺乏相应的扶持、指导、监督规范措施，

没有建立起行动计划实施的合理运行机制；当前各群体对学前教育小学化的认识

存在误区等。

在对上述原因进行分析之后，本文提出了以下对策：完善民办幼儿园资格准

入制度；健全学前教育组织结构，为行动计划实施提供制度平台；明确各级政府

间的学前教育财政责任；加强农村地区幼儿园保教队伍建设；进一步加大农村地

区学前教育投入以改善已有农村幼儿园的办园条件，保证新建幼儿园后续资金的

充足；地方政府应建立起对农村地区民办幼儿园的扶持和“服务-指导-监督”机制；

扭转当前学前教育“小学化”的倾向。

关键词：学前教育三年行动计划政策实施有效性

ABSTRACT

Pre-school education is an important social work, but at present the prominent

problems are “difficult to admit”, “expensive to admit”, so the several advises for the

current development of pre-school education indicate that must to implement the

pre-school education action plan for three years by county as the unit, improve the de-

velopment of pre-school education in local especially the rural area. What is implemen-

tary situation of the action plan in every county? Weather the pre-school education has

an major development or not? Based on the effectiveness of the action plan in a certain

county in the rural areas as the research focus, choose N city of Hebei province as the

special object of study, by understanding the implementary conditions and the difficul-

ties encountered in rural area of N county, to analysis the reason of inefficiency and

propose the policy to improve the action plan more efficiently.

Based on the research of Quasi-public goods supply theory, pre-school education

externality theory, Pre-school education cost sharing theory, Intergovernmental fiscal

support responsibility theory and The performance evaluation of public policy theory,

this paper review the situation in internal and aboard, propose the connotation about

“efficiency” of this study and offer the good theory foreshadowing for the case study.

In this paper the research approach is “from bottom to top” in the important parts,

adopt the combination of normative analysis and empirical analysis and use stratified

sampling method, select the kindergarten respectively as the research object in N urban

area, big village and small village, Both the all that my saw and heard during this re-

search and the research result indicate that the implement of the action plan is inefficient.

The reasons are the deficiency of law about pre-school education, so it can’t ensure the

implement of pre-school education; the lack of corresponding supporting, guiding and

supervising to the private kindergarten from the government of N city, the rational op-

eration mechanism of the action plan is missed and each group has a wrong cognition to

the pre-school education primary.

After the analysis of these reasons, This paper puts forward the following counter

plan: To develop the related laws and regulations about the pre-school education and

ensure the implement of the action plan in legal dimension; Improve the organizational

structure of the pre-school education and provide the institutional platform for the im-

plement of the action plan; To strengthen the construction of the teacher troop in the ru-

ral kindergarten; Further increase investment in rural pre-school education to improve

the conditions of the existing rural kindergarten and ensure the enough fund for the new

kindergarten; Local governments must set up the mechanism “services- guide - supervi-

sion ” for the rural private kindergarten and integrate the implementation mechanism of

the action plan; The provincial government urged to set up and improve the supervise,

assessment and accountability mechanism for the implementation of action plan; Re-

verse the current understanding of pre-school education primary in each group.

Key Words：Preschool education action plan for three years, Policy implementa-

tion, Effectiveness

中文摘要

ABSTRACT

第一章绪论 .................................................................................................................... 1

1.1 研究背景 ············································································································· 1

1.2 研究目的和意义 ································································································· 3

1.2.1 研究目的 ................................................................................................... 3

1.2.2 研究意义 ................................................................................................... 3

1.3 研究现状 ············································································································· 3

1.4 研究方法 ············································································································· 5

第二章 “学前教育三年行动计划”政策背景概述 .................................................... 6

第三章理论基础 ............................................................................................................ 8

3.1 准公共物品供给理论 ························································································· 8

3.2 学前教育外部性理论 ························································································· 9

3.3 学前教育成本分担理论 ··················································································· 10

3.4 政府间财政支出责任划分理论 ······································································ 10

3.5 公共政策绩效评价理论 ··················································································· 11

3.5.1 公共政策绩效评价概述 .......................................................................... 11

3.5.2 公共政策绩效评价标准 .......................................................................... 11

第四章行动计划实施的“有效性”的理论分析和评价框架构建 .......................... 14

4.1 行动计划实施的“有效性”的内涵分析 ······················································· 14

4.1.1 行动计划实施的效果分析 ..................................................................... 14

4.1.2 行动计划实施的效率分析 ..................................................................... 15

4.1.3 行动计划实施的效益分析 ..................................................................... 15

4.2 行动计划实施的“有效性”的评价框架构建 ··············································· 17

4.2.1 行动计划实施的“有效性”的评价原则 ............................................. 17

4.2.2 行动计划实施的“有效性”的评价框架 ............................................. 17

第五章行动计划实施的有效性评价的实证分析 ...................................................... 20

5.1N 县基本情况介绍 ···························································································· 20

5.2N 县三年行动计划内容简述 ············································································ 20

5.3N 县农村地区行动计划实施的现状及有效性评价 ········································ 21

5.3.1 问卷调查 ................................................................................................. 21

5.3.2 实地观测和访谈 ..................................................................................... 25

5.4 N 县行动计划实施的主要成就和问题 ··························································· 29

5.4.1 N 县农村地区行动计划实施的主要成就 ............................................. 29

5.4.2 N 县农村地区行动计划实施的主要问题 ............................................. 29

5.5N 县农村地区行动计划实施的有效性评价结果 ············································ 31

5.6 N 县农村地区行动计划实施低效的原因分析 ··············································· 36

5.6.1 政策制定本身存在问题 ......................................................................... 36

5.6.2 一些学前教育政策和法规在N县农村地区没有得到很好的执行 .... 36

5.6.3 学前教育相关配套法律法规缺失，不能保障学前教育政策执行 ..... 36

5.6.4N 县政府没有专门管理学前教育指导网络、指导和监督幼儿园的人员，

教育组织制度缺失，不能为行动计划执行提供制度平台 .......................... 36

5.6.5N 县政府对民办幼儿园缺乏相应的扶持、指导、监督规范措施 ...... 37

5.6.6 当前学前教育“小学化”的倾向严重 ................................................. 37

第六章行动计划实施低效的对策研究 ...................................................................... 38

6.1 完善民办幼儿园资格准入制度 ······································································· 38

6.2 健全学前教育组织结构，为行动计划更有效地实施提供制度平台 ··········· 39

6.3 明确各级政府间的学前教育财政责任 ··························································· 39

6.3.1 尽快把学前教育的人员费用上升到省级政府和中央政府来负担 ..... 39

6.3.2 从长远来看，完善政府间公共服务财政转移支付制度 ..................... 40

6.4 加强农村地区幼儿园保教队伍建设 ······························································· 41

6.4.1 增加农村地区幼儿园教师数量，配备保健医生和保育员 ................. 41

6.4.2 增加农村地区幼儿园普通教师的培训机会，提高培训的实际效果 . 41

6.4.3 提高农村地区幼儿教师待遇，维护幼儿园教师权益 ......................... 41

6.5 进一步加大农村地区学前教育投入改善办园条件 ······································· 41

6.5.1 改善已有农村幼儿园的办园条件 ......................................................... 41

6.5.2 保证农村地区新建乡镇中心示范幼儿园后续资金的充足 ................. 41

6.6 地方政府应建立对农村地区民办园的扶持和“服务-指导-监督”机制 ···· 42

6.8 扭转当前学前教育“小学化”的倾向 ··························································· 43

第七章研究结论与展望 .............................................................................................. 44

7.1 研究结论 ··········································································································· 44

7.2 研究展望 ··········································································································· 44

参考文献 ........................................................................................................................ 45

附录 1 ............................................................................................................................. 47

附录 2 ............................................................................................................................. 50

在读期间公开发表的论文及相关研究成果 ................................................................ 53

致谢 .............................................................................................................................. 54

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摘要：

摘要学前教育是一项重要的社会公益事业，但当前我国“入园难”、“入园贵”问题突出，为此国家在《关于当前发展学前教育的若干意见》中提出在2011年到2013年期间要以县为单位实施学前教育三年行动计划（以下简称行动计划），促进当地尤其是农村地区学前教育发展。但行动计划在各个县实施的情况怎么样？农村地区学前教育是否得到了较大发展？本文以行动计划在某个县农村地区实施的有效性为研究重点，选择河北省N县作为个案研究对象，通过了解N县农村地区行动计划实施的情况及遇到的问题，对行动计划实施低效的原因进行分析，提出能促进农村地区行动计划更有效实施的政策建议。本文在对准公共物品供给理论、学前教育外部性理论、学前教育...

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