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          《遼寧省人民政府辦公廳關于全面加強鄉村小規模學校和鄉鎮寄宿制學校建設的實施意見》文件解讀

          【字號 日期:2019-01-02 09:07:10

          《遼寧省人民政府辦公廳關于全面加強鄉村小規模學校和鄉鎮寄宿制學校建設的實施意見》文件解讀

          一、 文件起草的背景

            一是農村教育面臨的形勢所需。隨著國家城鎮化的不斷推進,城鄉格局帶來了新的變化,歷史上農村兩類學校存在布局規劃、師資隊伍結構不夠合理,辦學條件差等問題,同時還將面臨城鎮化帶來的農村人口急劇減少,很多學校已經出現或即將出現“空心化”的問題,這些問題都需要面對和解決。兩類學校是我國教育體系的“神經末梢”,是控輟保學的重要環節,是鞏固提高義務教育普及水平的最后屏障,不解決短板問題,實現教育現代化就是一句空談。

            二是黨中央國務院提出了新的要求。黨的十八大以來,全黨始終堅持以人民為中心的執政理念,促公平、提質量成為當下全黨教育工作的主要任務。義務教育質量和辦學條件在區域間、城鄉間、校際間存在巨大差距,解決義務教育均衡發展,特別是解決“鄉村弱”問題已形成共識,為此,2016年國務院下發了《關于統籌推進縣域內城鄉義務教育一體化改革發展的若干意見》(國發〔2016〕40號),將消除義務教育城鄉二元結構壁壘,加快推進縣域內城鄉義務教育學校建設一體化改革發展,解決“鄉村弱”的問題提出。2018年國務院辦公廳印發了《國務院辦公廳關于全面加強鄉村小規模學校和鄉鎮寄宿制學校建設的指導意見》(國辦發〔2018〕27號〕,對兩類學校建設提出了新的具體的要求。

          二、 文件起草的依據

            《國務院辦公廳關于全面加強鄉村小規模學校和鄉鎮寄宿制學校建設的指導意見》(國辦發〔2018〕27號)

            《遼寧省人民政府關于統籌推進縣域內義務教育城鄉一體化改革發展的實施意見》(遼政發〔2016〕56號)

            《中共遼寧省委 遼寧省人民政府關于全面深化新時代教師隊伍建設改革的實施意見》(遼委發〔2018〕35號)

          三、 《實施意見》的總體思路

            推進城鄉義務教育一體化發展是黨中央國務院推進社會公平的一項重要舉措,是推進基本公共服務均等化的重要手段。城鄉義務教育一體化的終極目標是使城鄉孩子享受同等質量的義務教育,實現這一目標需要一個較長的過程。兩類學校是農村義務教育短板中的短板。因此,我們在《實施意見》中結合了我省農村教育和社會經濟發展情況的實際,提出了加強兩類學校建設按照“統籌規劃,合理布局”“重點保障,兜住底線”“內涵發展,提高質量”的基本原則,提出努力到2020年,基本補齊兩類學校短板。

          四、 《實施意見》提出了六個方面的具體措施

            一是統籌優化布局規劃。“十一五”以來,我省大部分地區對農村義務教育學校布局進行了大規模調整,特別是農村義務教育九年一貫制寄宿制學校的大規模建設,使農村學校布局有了很大改善,大幅度減少學校數量的同時提高了辦學效益和質量,但隨著隨遷子女在城市義務教育學校就讀和升學無障礙政策的實施,以及我省前些年部分地區實施農村初中進城,特別是近年來城鎮化進程的快速推進,導致農村學校義務教育階段學生數量急劇減少,不斷產生小規模學校,一些地區農村學校出現空心化現象。針對以上情況,我省在《實施意見》中提出的第一項工作就是要統籌布局規劃。優化布局事關長遠,既要解決農村學生上學相對方便,又要考慮辦學效益和質量的問題,既要考慮當下,又要考慮未來農村教育發展趨勢的問題,因此我們提出各縣(市、區)政府要在摸清底數的基礎上,因地制宜、分類施策,做到一縣(市、區)一案、一鄉(鎮)一策,統籌優化兩類學校規劃布局;要按照“科學評估、應留必留、先建后撤、積極穩妥”的原則從嚴掌握,妥善處理學校撤并問題。同時我們為保護和合理利用有限的教育資源,對因布局調整閑置校園校舍的管理和使用提出了指導性處置意見,要求閑置校園、校舍主要用于發展鄉村學前教育、校外教育、留守兒童關愛保護等。

            二是切實改善辦學條件。農村學校與城市學校相比,硬件和軟件條件普遍有差距,特別是不足百人的小規模學校和教學點差距更大。在《實施意見》中我們提出要切實改善辦學條件,就是要求地方黨委和政府落實中央提出要堅持黨對教育的全面領導,堅持優先發展教育和各級政府要為學校辦學安全托底的要求,加大對農村教育投入,改善兩類學校辦學條件。《實施意見》要求各地要在城鄉學校建設上統一標準,認真落實國家普通中小學校建設標準、裝備配備標準和全面改善貧困地區義務教育薄弱學校基本辦學條件有關要求,按照“實用、夠用、安全、節儉”的原則,保證兩類學校辦學條件達到“20條底線要求”;鄉鎮寄宿制學校還要達到《遼寧省教育廳關于進一步加強義務教育階段農村寄宿制學校管理工作的通知》(遼教發〔2015〕175號)明確的建設和管理要求。提出各地區要積極籌措經費,全面加強兩類學校建設,力爭2019年秋季開學前,兩類學校辦學條件達到標準化學校辦學標準。

            三是加強師資隊伍建設。城鄉義務教育的差距是全方位的,但核心是教師隊伍整體素質的差距。目前影響教師隊伍整體素質差距的核心是現行教育管理體制機制問題,因此,《實施意見》力求在管理體制機制上有所突破,以此增強農村教師崗位的吸引力,提高農村教育辦學活力。提出三方面的要求:一是完善編制和崗位管理。要求編制和教師職務崗位核定要向鄉村小規模學校、寄宿制學校傾斜,鄉村小規模學校編制按照班師比與生師比相結合的方式核定,對寄宿制學校應根據教學、管理實際需要,核定附加編制,并通過統籌現有編制資源、加大調劑力度等方式適當增加編制;推進縣域內同學段學校教師職務崗位結構向鄉村傾斜,努力使鄉村學校中高級教師崗位比例不低于城鎮同學段學校;改革現有教師職務評聘辦法,制定有利于增強鄉村教師崗位吸引力和有利于鄉村教師交流的教師職務評聘制度,如將中小學教師到鄉村學校或薄弱學校任教1年以上的經歷作為申報高級教師的必要條件、在鄉村學校任教累計3年以上(含城鎮交流、支教)經考核表現突出的教師,評聘職稱不作發表論文的要求,同等條件下優先評聘等。二是促進師資力量均衡配置。提出加快推進義務教育階段教師“縣管校聘”管理改革,實行教師“無校籍管理”,使教師由“學校人”變為“系統人”,強化教育行政部門區域內教育資源統籌調配,有利于緩解兩類學校教師缺編和結構性缺編問題。三是改革教師培養培訓模式。《實施意見》針對現有教師錄用機制下,農村學校存在大量家在外地的年輕教師,這部分教師因為家庭及婚姻等問題存在工作不安心、農村學校留不住人等情況,提出面向兩類學校實施定向招收師范生計劃,解決農村教師進得來、留得住的問題;為提高現有教師業務水平,實施鄉村教師素質提升工程,通過加強省、市、縣(市、區)、校四級教研聯動機制,發揮教研隊伍優勢,開展多種形式的培訓活動,提升鄉村教師整體素質和專業化水平。

            四是不斷強化經費保障。義務教育是一項規模龐大的公益性事業和民生工程,是需要超前投入和優先發展的國家戰略性任務。教育的發展需要大量的投入做保障,正如習總書記提出的“各級黨委和政府要為學校辦學安全托底”的要求。保障教育經費是保障學校辦學安全的最基本要求。目前,我省兩類學校,特別是小規模學校辦學經費緊張,即便是按照現行不足100名學生的學校按照100人的標準足額撥付公用經費,也很難滿足學校正常支出。北方學校冬季取暖費就需要一大筆費用,扣除取暖費,公用經費所剩無幾,因此,我們在《實施意見》中提出,各地區要認真落實《省政府關于進一步完善城鄉義務教育經費保障機制的實施意見》(遼政發〔2016〕21號),將義務教育經費全面納入財政預算保障,重點向兩類學校傾斜。要求各縣(市、區)政府在編制鄉鎮中心學校年度預算時,要統籌考慮其管理的村小學和教學點教育教學特殊性。提出兩個“不低于”,即對村小學和教學點不足百人的學校按不低于100人單獨預算公用經費,對鄉鎮寄宿制學校按寄宿生生均不低于200元標準增加公用經費。嚴禁鄉鎮中心學校擠占村小學和教學點經費,并鼓勵各地結合實際進一步提高兩類學校生均公用經費水平,確保兩類學校正常運轉。

            五是全面提高辦學水平。提高學校辦學質量和水平最終要靠資源的初始配置和建立激發辦學內在活力的體制和機制,在提高兩類學校辦學水平方面,我們既要從長計議也要立足當前。我們在《實施意見》中提出三方面的意見:一是推進鄉鎮中心學校和同鄉鎮小規模學校一體化辦學、協同式發展、綜合性考評,實行中心學校校長負責制,統一課程設置、教學安排、教研活動和教師管理,推進教師集體教研備課;二是各地要深化辦學模式改革,積極推進學區制管理、集團化辦學、委托管理、教育聯盟、對口幫扶等辦學模式改革全覆蓋,實現每一所鄉村學校都有城區學校對口幫扶,不斷提升兩類學校辦學水平;三是推進“互聯網+教育”發展,實現兩類學校寬帶網絡全覆蓋,加強網絡課程資源建設和管理,采取同步教研、同步課堂、公開課、在線咨詢等方式,發揮好優質學校、教研員和骨干教師的輻射帶動作用。

            六是加強組織領導。辦好義務教育階段兩類學校是各級黨委和政府的責任,特別是縣(市、區)黨委和政府要認真落實義務教育辦學的主體責任,統籌組織領導區域內的兩類學校建設任務。《實施意見》對各級政府提出了相關要求,進一步明確了責任:一是要求各市、縣(市、區)政府要建立健全工作領導體制,做好專題調研,制定2018―2020年三年工作方案,定期召開工作推進會議,及時解決兩類學校在規劃布局、經費投入、建設運行、教師隊伍建設等方面的突出問題,保障各項工作任務落實到位;二是省教育廳(省政府教育督導室)把兩類學校建設納入縣域義務教育發展基本均衡和優質均衡督導評估認定的重要指標,納入縣域內城鄉義務教育一體化改革發展的監測重點,作為對各市政府履行教育職責評價的重要內容;三是完善中小學責任督學掛牌督導制度,將兩類學校全部納入責任督學掛牌督導范圍,定期開展督導檢查,確保教育監督重心下移和關口前置。建立教育質量監測評估機制,定期對兩類學校開展質量評估,為教研指導和教學改進提供參考和依據。

           

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