試論教育城鄉(xiāng)一體化建設(shè)中的教育補(bǔ)償

孫凱

（北京工商大學(xué)體育與藝術(shù)教學(xué)部，北京100037）

[摘要]教育補(bǔ)償是政府或非政府組織為保障弱勢(shì)群體的基本教育權(quán)利所采取的教育補(bǔ)償制度和各種補(bǔ)償措施。在教育城鄉(xiāng)一體化背景下實(shí)施鄉(xiāng)村教育補(bǔ)償是社會(huì)公平的理性訴求，是政府的權(quán)責(zé)復(fù)位，是現(xiàn)實(shí)社會(huì)的強(qiáng)烈吁求。鄉(xiāng)村教育及城鄉(xiāng)特殊弱勢(shì)群體是城鄉(xiāng)教育一體化中教育補(bǔ)償?shù)膶?duì)象，教育投入和教師資源補(bǔ)償是促進(jìn)鄉(xiāng)村教育發(fā)展的關(guān)鍵。

[關(guān)鍵詞]教育城鄉(xiāng)一體化；弱勢(shì)群體；教育補(bǔ)償

[中圖分類號(hào)]G521

[文獻(xiàn)標(biāo)識(shí)碼]A

[文章編號(hào)]1674-3652（2015）01-0132-05

[收稿日期]2014-10-25

[作者簡(jiǎn)介]孫凱，女，河南商丘人，講師，主要從事教育學(xué)和音樂(lè)教育研究。

Abstract:There has been a new round of research upsurge of Chinese chieftain system and culture. In 2013, the research was mainly conducted in the following aspects: 1. research of the basic theory and methods for chieftain system study; 2. research of the classic works about Chinese chieftain system and culture; 3. research of Chinese chieftain system itself; 4. research of changing from chieftain to flowing officials; 5. research of chieftain culture; 6. research of application of the list of world heritage. These researches have not only laid solid academic foundations for the construction of chieftain study, but also provided possibility for the effective exploitation of chieftain culture. However, there still exist some deficiencies in terms of research perspective, discourse system, research contents and methods, document sorting, academic monographs, and team cooperation. All these deficiencies need to be improved in the future researches. “Stone Tablet for Immotality”is located by Qingshui River of Dachong Village, Tianzhu County, Guizhou Province. It was erected in 1973 in order to record the process and result of the suit about Fengshui between the two families of Yang and Yuan. But up to now, the acadmic circle has not had a full understanding and an in-depth research of it. In fact, it was a typical tablet for suit about Fengshui, which embodies the double roles of“consciousness of Fengshui”and“enjoyment in suit”. The tablet is rare and of some academic value and research siginificance. Marriage is a component of traditional Buyi culture. It has constantly been developing, transiting from traditional social context to modern context, with some traditional elements removed and modern customs wedged in, which has ultimately led to the connotation change of traditional marriage, as can be illustrated by a typical case of a Buyi village. The writer holds that the springing up of new customs is a result of the adjustment of the mass in the face of social and cultural changes and is an effective approach to transferring and releasing the pressure from social transformation. With further social and cultural change, the mass will continually adjust their actions and ideas and create more“new”means of cultural expressions. In terms of the faith in Buddhism in Mt. Fanjing area, women are more involved than men, which can be illustrated by the faith in the regionalized Bodhisattva, an integrated image of Ninth Empress, Empress Li and Bodhisattva that are in fact completely irrelevant. With the characteristics of primitive worship of nature, historical authenticity, universality and redemption of Buddhism, the regionalized Bodhisattva has become a complex Goddess that transcends both the holy and secular worlds. An analysis of the Buddhist phenomenon in Fanjing Moutain from feminist perspective can reveal the implied symbolic essence of religion and the real status of women in religious belief. Kaizhou was remote and it was one of places for exiling officials in Tang Dynasty, which made it a place for the gathering of many political figures and scholars, and helped promote the cultural position of Kaizhou. Instead of feeling pessimistic and depressed, the exiled scholar officials tried to improve people’s life by building water conservancy and created a lot of poems of great thought and artistic value. They embodied scholar officials' valuable political virtue and excellent demeanor full of Confucian mission. They added weight to Kaizhou’s history, and had great influences on the history of Northeast Chongqing. In this article, the writers mainly investigate the background of the exiled prefectural governors including Wei Chuhou, Tang Ci, Cui Taizhi and their political practice and poem creations in Kaizhou. Neutral witnesses were important participators in state and county suit in Qing Dynasty. Most of them came from complex clan system, communal organizations and gentry class. Apart from giving evidence in court, neutral witnesses could also participate in reconciliation and case detection as well as act as warrant for the litigant. The participation of neutral witnesses enriched the cases and provided necessary bases for the magistrate’s judgment of the cases. Under the guidance of humanist literary view, Luo Jialun in literary revolution fiercely denounced the traditional literature and classical Chinese language and boldly explored theories about the nature of old literature, vicissitude of modern Chinese literary thought, the connotation and existent crises of and the solutions to new literature. Besides, he actively involved himself in the creation of vernacular novel and new poem. Luo Jialun proved himself to be a master sportsman in the literary revolution. Traditional Chinese scholars’stories were elegant in appearance but vulgar in content, and they should be classified as folk literature. However, as the traditional definition of“folk”is partial and much emphasis is put on colloquial folk literature, it is hard for traditional Chinese scholars’stories to have a seat in typological index of Chinese folk stories. Attention to such type of stories can deepen our understanding of the individuality of folk stories based on the Chinese language so as to make us further understand their universality with world folk stories. The writer of this article maintains that traditional Chinese scholars’stories should be added to the typological index of Chinese folk stories. Historically, Jingping County was very developed in forestry, and the transaction of forest and land was frequent, but the lands were not highly concentrated. Land concentration has some features of nationality and region. Compared with those of Han nationality, farming lands were not so concentrated, and in comparison with the farming land occupation, the forests were less concentrated although the latter were more than the former in amount. In the development of regional economy, the increasingly fierce competition between local governments will inevitably result in the convergence of industrial policies, which is harmful to the coordinative and long-term development of regional economy. The solution to the problem is to promote the macro-regulation of the central government, strengthen the duty, right and interest of local governments and direct local governments to embody the differences in regional industrial policy. According to John Dewey’s“view education as growth”, education is a process of physical, intellectual and moral growth. Growth itself is the only aim of moral. This view is a route to idealized modern school character education which aims at cultivating moral growth, presupposes the possibility of an immature person’s growth or development. The inner value of modern school character education lies in reconstructing or transforming human moral experience, and its external value lies in coordinating the relationship between individual and society and transforming social experience with individual moral experience. Educational compensation is a remedial system which comprises compensational measures of governments or non-governmental organizations in protecting the basic educational right of disadvantaged groups. Against the background of integration of urban and rural education, the implement of educational compensation is a rational appeal for social justice. It is government’s restoration of rights and reliability and is the intense appeal of modern society. Rural education and the disadvantaged groups are the objects of the educational compensation and investment in education and teaching staff compensation are the key to promoting rural education.

[基金項(xiàng)目]重慶市2012年重大軟科學(xué)課題“重慶市城鄉(xiāng)教育一體化指標(biāo)體系研究”（KJTC201201）。

當(dāng)前，我國(guó)城鄉(xiāng)教育的差距已經(jīng)超過(guò)了合理的限度，城鄉(xiāng)之間的教育不均衡發(fā)展不僅有失教育公平的原則，損害他人的教育權(quán)益，也造成整個(gè)社會(huì)發(fā)展穩(wěn)定的潛在危機(jī)。在城鄉(xiāng)教育一體化的背景下，對(duì)城鄉(xiāng)教育發(fā)展中的弱勢(shì)群體或個(gè)人進(jìn)行教育補(bǔ)償，是實(shí)現(xiàn)教育公平、縮小城鄉(xiāng)教育差距、促進(jìn)城鄉(xiāng)教育均衡發(fā)展的有效舉措。

一、教育補(bǔ)償內(nèi)涵解析

（一）教育補(bǔ)償

補(bǔ)償是指抵消（損失、消耗）；補(bǔ)足（缺欠、差額）。補(bǔ)償行為的發(fā)生是以虧欠或者造成損失為前提。教育補(bǔ)償（Educational compensation）是由“教育”與“補(bǔ)償”組合的復(fù)合詞，指在教育領(lǐng)域所實(shí)施的補(bǔ)償，是政府或非政府組織為保障弱勢(shì)群體的基本教育權(quán)利所采取的教育補(bǔ)救制度和采取的各種教育補(bǔ)救行為的總稱。它包括兩方面涵義：其一是“教育損害補(bǔ)償”，即對(duì)在社會(huì)發(fā)展與改革中受損的群體或者個(gè)人的教育彌補(bǔ)，它暗含了國(guó)家、社會(huì)在發(fā)展中的過(guò)失或者是“付出的代價(jià)”。其二是“教育正義維護(hù)”，即為保障社會(huì)弱勢(shì)群體的基本教育權(quán)利而進(jìn)行的特殊的教育救助，它強(qiáng)調(diào)的是國(guó)家對(duì)社會(huì)公平正義的維護(hù)[1]。教育補(bǔ)償體現(xiàn)了教育的“倫理關(guān)懷”，是教育正義的道德訴求[2]。

（二）教育補(bǔ)償?shù)闹黧w、對(duì)象與內(nèi)容

1.教育補(bǔ)償?shù)闹黧w。政府與非政府組織是教育補(bǔ)償?shù)闹黧w。教育是社會(huì)公共產(chǎn)品，教育公平是社會(huì)公平的基石，教育在社會(huì)發(fā)展穩(wěn)定中扮演著重要的角色。保障教育公平尤其是基礎(chǔ)教育的公平是政府的職責(zé)。在教育領(lǐng)域出現(xiàn)不公時(shí)，為維護(hù)社會(huì)公平與正義，保障公民的基本教育權(quán)利，對(duì)弱視群體開(kāi)展教育補(bǔ)償是政府不可推卸的職責(zé)。因此，政府是教育補(bǔ)償?shù)牡谝回?zé)任主體。非政府組織從事社會(huì)公益事業(yè)，提供公共產(chǎn)品，其運(yùn)作方式極具個(gè)性化，是政府行為的有益補(bǔ)充，在一定意義上可充當(dāng)政府的“替補(bǔ)者”[3]，在教育補(bǔ)償中扮演著重要的角色，也是教育補(bǔ)償是主體之一。但政府與非政府組織在教育補(bǔ)償中所承擔(dān)的責(zé)任性質(zhì)是不同的，政府具有道義上與法律上的雙重主體責(zé)任，非政府組織只有道義責(zé)任。以政府為主導(dǎo)構(gòu)建的教育補(bǔ)償制度才能從根本上保障弱勢(shì)群體的教育權(quán)利。

2.教育補(bǔ)償?shù)膶?duì)象。教育弱勢(shì)群體是教育補(bǔ)償?shù)膶?duì)象。弱勢(shì)群體也叫社會(huì)脆弱群體，其界定是根據(jù)人的社會(huì)地位、生存狀況而非生理特征和體能等因素，是與強(qiáng)勢(shì)群體相對(duì)應(yīng)的概念，其形成原因是除自然因

素外，主要是由于社會(huì)轉(zhuǎn)型時(shí)期結(jié)構(gòu)性調(diào)整或制度性因素的結(jié)果，而并非個(gè)人主觀因素所致。這樣，弱勢(shì)群體的形成就與一定社會(huì)的經(jīng)濟(jì)制度、政治制度相聯(lián)系，它被看成是某些在經(jīng)濟(jì)、政治和社會(huì)資源的分配方面缺乏機(jī)會(huì)而處于不利地位的人的群體[4]。弱勢(shì)群體具有相對(duì)性和歷史性的特點(diǎn)，在不同領(lǐng)域、不同時(shí)期會(huì)有不同的指稱對(duì)象。在教育領(lǐng)域，從整體方面而言，計(jì)劃經(jīng)濟(jì)體制下形成的城鄉(xiāng)二元結(jié)構(gòu)導(dǎo)致了教育城鄉(xiāng)二元結(jié)構(gòu)的形成。教育城鄉(xiāng)二元結(jié)構(gòu)造成了對(duì)鄉(xiāng)村教育的忽視和教育資源配置的不公，客觀上形成了鄉(xiāng)村教育質(zhì)量與效能低下的事實(shí)，損害了廣大鄉(xiāng)村受教育者的利益，違背了社會(huì)公平與正義原則。因此，與城市教育比較而言，鄉(xiāng)村教育是城鄉(xiāng)教育一體化發(fā)展中的弱勢(shì)群體，也是教育領(lǐng)域中最大的弱勢(shì)群體；從個(gè)別弱勢(shì)群體上，是指在教育中由于“處境不利”，教育權(quán)益得不到保障的教育貧困地區(qū)與學(xué)校、異地打工子女、失學(xué)兒童、殘疾及智障兒童等，這些弱勢(shì)群體在城鄉(xiāng)都存在，他們也是教育補(bǔ)償?shù)膶?duì)象。

3.教育補(bǔ)償?shù)膬?nèi)容。教育補(bǔ)償?shù)膬?nèi)容主要包括兩個(gè)方面：其一是對(duì)弱勢(shì)群體的教育資源的補(bǔ)償，包括經(jīng)費(fèi)、師資、辦學(xué)條件等物質(zhì)性資源的補(bǔ)償，也包括權(quán)力、政策、制度、信息等非物質(zhì)性資源的補(bǔ)償。其二是對(duì)弱勢(shì)群體的學(xué)業(yè)與心理補(bǔ)償，如對(duì)殘疾與智障兒童的心理救助；對(duì)打工子女學(xué)前教育的學(xué)業(yè)補(bǔ)償?shù)?。目前，教育資源的不合理、不公正配置是導(dǎo)致我國(guó)城鄉(xiāng)教育差距的主要因素，城鄉(xiāng)教育補(bǔ)償主要是指對(duì)鄉(xiāng)村教育資源的補(bǔ)償。

二、教育城鄉(xiāng)一體化建設(shè)中實(shí)施教育補(bǔ)償?shù)谋匾?/h2>

教育是促進(jìn)個(gè)人與社會(huì)發(fā)展的重要手段，也是提高弱勢(shì)群體的社會(huì)生存能力、促進(jìn)社會(huì)階層合理流動(dòng)和社會(huì)穩(wěn)定的主要因素。在教育城鄉(xiāng)一體化建設(shè)過(guò)程中，對(duì)鄉(xiāng)村教育進(jìn)行補(bǔ)償，不僅可以有效地彌補(bǔ)因政策性因素給鄉(xiāng)村教育造成的不平等待遇，促進(jìn)教育公平，維護(hù)社會(huì)正義，更能有效地縮小城鄉(xiāng)教育差距，推進(jìn)教育城鄉(xiāng)一體化和城鄉(xiāng)發(fā)展一體化的建設(shè)。

（一）社會(huì)公平的理性訴求

羅爾斯在《正義論》中指出，正義即公平，分配正義的主題是社會(huì)基本結(jié)構(gòu)和基本制度安排。社會(huì)資源與機(jī)會(huì)獲得對(duì)每一個(gè)個(gè)體都應(yīng)是公平的，但在現(xiàn)實(shí)生活中完全的平等是不可能的。據(jù)此，他提出差別原則，認(rèn)為社會(huì)和經(jīng)濟(jì)的不平等只有在結(jié)果能給每一個(gè)人尤其是那些最少受惠者帶來(lái)利益補(bǔ)償時(shí)才是正義的。羅爾斯強(qiáng)調(diào)政府在實(shí)現(xiàn)分配正義過(guò)程中應(yīng)發(fā)揮的主體作用，以彌補(bǔ)市場(chǎng)自我調(diào)節(jié)的不足。教育公平是社會(huì)公平在教育領(lǐng)域的體現(xiàn)和延伸，是社會(huì)公平的基礎(chǔ)。教育利益已經(jīng)成為我國(guó)利益主體普遍追求的根本利益或共同利益。教育補(bǔ)償立足于教育的整體利益，通過(guò)教育的再分配，對(duì)教育發(fā)展過(guò)程中形成的弱勢(shì)群體的教育利益進(jìn)行必要的調(diào)整與補(bǔ)償，縮小與強(qiáng)勢(shì)群體的教育差距。教育補(bǔ)償符合平等原則的要求，是差別原則的具體運(yùn)用，是教育公平由“水平公平”向“垂直公平”的深化。當(dāng)前，隨著市場(chǎng)經(jīng)濟(jì)的發(fā)展，城鄉(xiāng)教育的二元結(jié)構(gòu)差距并沒(méi)有得到有效的彌補(bǔ)，反而有加大的趨勢(shì)，這不僅嚴(yán)重地?fù)p害了部分人的受教育權(quán)益，更違背了社會(huì)公平正義的原則。僅僅“一視同仁”已不能有效地解決弱視群體的困境，還需要傾斜的補(bǔ)償措施加以彌合。因此，以政府為主導(dǎo)，調(diào)動(dòng)社會(huì)各種力量，對(duì)弱勢(shì)群體進(jìn)行教育補(bǔ)償，促進(jìn)城鄉(xiāng)教育均衡發(fā)展，是維護(hù)社會(huì)正義與社會(huì)公平的明智選擇，是實(shí)現(xiàn)教育城鄉(xiāng)一體化的理性之舉。

（二）政府的權(quán)責(zé)復(fù)位

教育補(bǔ)償不是無(wú)奈的選擇，而是對(duì)社會(huì)整體利益的長(zhǎng)效投資，是義利雙贏的智慧之舉。教育補(bǔ)償不是簡(jiǎn)單的救助，不是施舍與憐憫，而是教育弱勢(shì)群體在社會(huì)公平訴求下的一種“應(yīng)得”。弱勢(shì)群體的出現(xiàn)本身就暗含了政府與社會(huì)的過(guò)失與責(zé)任，其責(zé)任缺失既體現(xiàn)在教育發(fā)展過(guò)程中對(duì)弱勢(shì)群體利益的損害，也說(shuō)明了政府對(duì)社會(huì)公平與正義維護(hù)的缺失。基礎(chǔ)教育具有明顯的強(qiáng)制性、社會(huì)性、公益性和公平性等特征，決定了在市場(chǎng)機(jī)制中“市場(chǎng)管效率、政府管公平”的情況下，政府應(yīng)承擔(dān)起維護(hù)社會(huì)公平的責(zé)任。政府權(quán)力具有普遍的影響力、強(qiáng)制性和權(quán)威性，可通過(guò)法律、經(jīng)濟(jì)、政策等手段對(duì)社會(huì)資源實(shí)行合理的再分配，實(shí)現(xiàn)對(duì)弱勢(shì)群體的利益補(bǔ)償。在農(nóng)村人口龐大的我國(guó)，城鄉(xiāng)教育二元結(jié)構(gòu)所造成的教育趨弱勢(shì)群體是一個(gè)龐大的數(shù)量，也只有政府才擁有相應(yīng)的資源和實(shí)力對(duì)城鄉(xiāng)教育體系中的弱勢(shì)群體進(jìn)行教育補(bǔ)償，才能真正解決我國(guó)教育領(lǐng)域所存在的各種不公平問(wèn)題，實(shí)現(xiàn)教育公平。即政府在維護(hù)與促進(jìn)教育公平中承擔(dān)著不可推卸的責(zé)任與義務(wù)，是推進(jìn)城鄉(xiāng)教育均衡發(fā)展的法律責(zé)任主體。因此，進(jìn)行教育補(bǔ)償是政府權(quán)責(zé)的復(fù)位，

是政府對(duì)社會(huì)公平正義的維護(hù)。

（三）現(xiàn)實(shí)社會(huì)的強(qiáng)烈吁求

社會(huì)階層正常有序、合理的流動(dòng)是社會(huì)生產(chǎn)力均衡發(fā)展的客觀要求。教育與社會(huì)階層優(yōu)化正相關(guān)，是促進(jìn)社會(huì)階層流動(dòng)，防止社會(huì)階層固化，形成穩(wěn)定、有序、充滿活力的社會(huì)結(jié)構(gòu)的重要手段。城鄉(xiāng)教育的二元制度造成了鄉(xiāng)村受教育者接受教育不平等→就業(yè)不平等→收入一定的不平等→生活不平等→下一代的不平等的惡性循環(huán)，限制了社會(huì)階層的流動(dòng)與優(yōu)化，對(duì)社會(huì)穩(wěn)定帶來(lái)隱患。教育優(yōu)質(zhì)資源過(guò)于向城市地帶集中，從而導(dǎo)致很多農(nóng)村優(yōu)秀學(xué)生失去更好的受教育機(jī)會(huì)。調(diào)查顯示，占七成的農(nóng)村人口，接受高等教育的比例卻不到三成；而占三成的城市人口，卻享受了七成以上的高等教育資源。“出身越底層，上的學(xué)校越差”這一趨勢(shì)正在被加劇和固化。在2010年清華大學(xué)的新生中，農(nóng)村的孩子只占到了17%；而在這一年，在全國(guó)高考的考場(chǎng)上，農(nóng)村的孩子占到62%[5]。鄉(xiāng)村教育競(jìng)爭(zhēng)力低下的現(xiàn)實(shí)，已影響到受教育者對(duì)未來(lái)命運(yùn)的選擇。2013年全國(guó)高考棄考學(xué)生約100萬(wàn)人，除不足20萬(wàn)出國(guó)外，其他80多萬(wàn)大多選擇了就業(yè)，且大部分為農(nóng)村學(xué)生[6]。另外，我國(guó)社會(huì)經(jīng)濟(jì)發(fā)展的弱點(diǎn)與難點(diǎn)都在農(nóng)村，沒(méi)有農(nóng)村的發(fā)展就沒(méi)有農(nóng)村的現(xiàn)代化，就沒(méi)有社會(huì)的整體發(fā)展。農(nóng)村相對(duì)較低的人口素質(zhì)與我國(guó)城鄉(xiāng)協(xié)調(diào)發(fā)展和建設(shè)新農(nóng)村的要求不相適應(yīng)。鄉(xiāng)村基礎(chǔ)教育與職業(yè)教育發(fā)展不足，教育資源配置不均衡以及教育費(fèi)用的過(guò)快上漲，加大了廣大弱勢(shì)群體教育支出的負(fù)擔(dān)，形成了鄉(xiāng)村教育的整體落后。鄉(xiāng)村教育與鄉(xiāng)村孩子的命運(yùn)與每個(gè)家庭乃至整個(gè)農(nóng)村的命運(yùn)密切相連，并深刻地影響著中國(guó)的未來(lái)發(fā)展。城鄉(xiāng)教育差距已經(jīng)成為現(xiàn)實(shí)社會(huì)生活中影響社會(huì)發(fā)展、穩(wěn)定的社會(huì)問(wèn)題，引發(fā)了社會(huì)的廣泛關(guān)注和社會(huì)不滿。實(shí)施教育補(bǔ)償，縮小城鄉(xiāng)教育差距，是推進(jìn)教育城鄉(xiāng)均衡發(fā)展和教育一體化建設(shè)的現(xiàn)實(shí)訴求。

三、教育城鄉(xiāng)一體化建設(shè)中教育補(bǔ)償?shù)脑瓌t與舉措

（一）教育城鄉(xiāng)一體化建設(shè)中教育補(bǔ)償?shù)脑瓌t

協(xié)同原則。鄉(xiāng)村教育補(bǔ)償是一個(gè)系統(tǒng)工程，在實(shí)施過(guò)程中，各部門、各組織有自己的補(bǔ)償對(duì)象與舉措，但都是為了達(dá)到同一個(gè)目的，這就需要各部門組織之間的協(xié)調(diào)，分工合作，合理、高效地利用資源，特別是非政府組織的教育補(bǔ)償活動(dòng)，政府應(yīng)納入教育補(bǔ)償?shù)慕y(tǒng)一規(guī)劃，統(tǒng)籌管理并給予各方面的支持與配合。

“造血”原則。“授人以魚(yú)不如授人以漁”，教育補(bǔ)償?shù)淖罱K目標(biāo)不是使弱勢(shì)群體靠“輸血”為生，而是通過(guò)營(yíng)養(yǎng)的補(bǔ)充，使弱勢(shì)群體恢復(fù)自身的“造血”機(jī)能，增強(qiáng)自我發(fā)展的能力。在鄉(xiāng)村教育補(bǔ)償中，增強(qiáng)鄉(xiāng)村教育的自我發(fā)展能力是補(bǔ)償?shù)闹饕康?。因此，教育補(bǔ)償不僅要重“硬件”補(bǔ)償，更要注重精神、文化、素質(zhì)、政策、信息等“軟件”方面的補(bǔ)償，提升鄉(xiāng)村教育自我改造、自我發(fā)展的內(nèi)在動(dòng)力。

可持續(xù)原則?；诔青l(xiāng)二元結(jié)構(gòu)的現(xiàn)實(shí)和我國(guó)城鄉(xiāng)教育之間的巨大差距，城鄉(xiāng)一體化及城鄉(xiāng)教育一體化建設(shè)將經(jīng)歷一個(gè)長(zhǎng)期的過(guò)程，教育補(bǔ)償也將是一項(xiàng)長(zhǎng)期的舉措，這就要求教育補(bǔ)償要堅(jiān)持可持續(xù)性。這種可持續(xù)性，一方面要求教育補(bǔ)償政策的穩(wěn)定性；另一方面要求教育投入的連續(xù)性以及依據(jù)社會(huì)的發(fā)展、現(xiàn)實(shí)需求的改變而做出相應(yīng)的調(diào)整。

適度原則。教育發(fā)展過(guò)程中的利益受損者迫切需要教育的補(bǔ)償，受損程度越嚴(yán)重，對(duì)補(bǔ)償力度的要求也就越高。但教育補(bǔ)償要遵循適度的原則，一方面是因?yàn)槲覈?guó)的經(jīng)濟(jì)社會(huì)發(fā)展水平尚不具備高度的補(bǔ)償能力；另一方面，如果對(duì)利益受損者補(bǔ)償過(guò)高，容易使他們產(chǎn)生依賴與懶惰心理，形成補(bǔ)償?shù)呢?fù)面效應(yīng)。

分類補(bǔ)償原則。分類補(bǔ)償是指對(duì)針對(duì)補(bǔ)償對(duì)象的各種困難與需求，在分層、分類的基礎(chǔ)上，依據(jù)一定的補(bǔ)償標(biāo)準(zhǔn)實(shí)施補(bǔ)償。為增強(qiáng)鄉(xiāng)村教育補(bǔ)償?shù)尼槍?duì)性、體現(xiàn)補(bǔ)償?shù)墓叫院统浞职l(fā)揮教育資源的效用，需要對(duì)補(bǔ)償對(duì)象的實(shí)際需求進(jìn)行考查、評(píng)議，確定補(bǔ)償標(biāo)準(zhǔn)，并根據(jù)補(bǔ)償對(duì)象的需求程度和政府的補(bǔ)償力度進(jìn)行分級(jí)分類，在此基礎(chǔ)上有序地開(kāi)展補(bǔ)償。

（二）教育城鄉(xiāng)一體化建設(shè)中教育補(bǔ)償?shù)呐e措

1.鄉(xiāng)村教育的補(bǔ)償。當(dāng)前，在城鄉(xiāng)教育一體化背景下對(duì)鄉(xiāng)村教育的差距主要是城鄉(xiāng)教育資源配置的不均衡所導(dǎo)致，因此，教育補(bǔ)償主要是對(duì)鄉(xiāng)村教育資源的補(bǔ)償，而這種資源補(bǔ)償不僅是物質(zhì)性資源的供給，更重要的是在人財(cái)物等方面政策的支持，即政策性補(bǔ)償。教育補(bǔ)償不僅包括為弱勢(shì)群體的提供教育資源的“底線標(biāo)準(zhǔn)”，還應(yīng)包括一部分“額外補(bǔ)償”[7]。當(dāng)前的政策取向多是一種對(duì)弱勢(shì)群體的傾斜，而不是教育

補(bǔ)償所要求的對(duì)弱勢(shì)群體的教育發(fā)展的“優(yōu)先待遇”?；谀壳暗默F(xiàn)實(shí)，教育資源的配置政策要做出相應(yīng)的調(diào)整，弱勢(shì)傾斜與弱勢(shì)補(bǔ)償相結(jié)合，使城鄉(xiāng)教育資源均衡配置。物質(zhì)資源補(bǔ)償包括鄉(xiāng)村學(xué)校的硬件與軟件設(shè)施的補(bǔ)償，完善的物質(zhì)資源配置不僅是保障教育質(zhì)量的必要條件，更是城鄉(xiāng)教育均衡發(fā)展及一體化建設(shè)的重要指標(biāo)。鑒于人力資源與財(cái)力資源在鄉(xiāng)村教育發(fā)展中的重要作用，這里就此方面的教育補(bǔ)償進(jìn)行探討。

（1）教育投入補(bǔ)償?！暗胤截?fù)責(zé)、分級(jí)管理、以縣為主”的鄉(xiāng)村教育管理使農(nóng)村基礎(chǔ)教育公共投入的總量、公平性和貧困地區(qū)教育經(jīng)費(fèi)來(lái)源等問(wèn)題變得尤為突出，主要體現(xiàn)在農(nóng)村基礎(chǔ)教育公共投入不足、教育投入主體結(jié)構(gòu)分配投入不夠合理、農(nóng)村基礎(chǔ)教育區(qū)域間財(cái)力狀況存在著較大的差異等方面。首先，應(yīng)確立政府財(cái)政是我國(guó)基礎(chǔ)教育的主體地位?；A(chǔ)教育作為一種公共產(chǎn)品，應(yīng)明確政府財(cái)政的公共投入是我國(guó)農(nóng)村基礎(chǔ)教育的投入主體，這是保障城鄉(xiāng)教育公平的基本要求。其次，明確各級(jí)政府在基礎(chǔ)教育中應(yīng)承擔(dān)的責(zé)任?；A(chǔ)教育地方負(fù)責(zé)、分級(jí)管理的管理體制設(shè)計(jì)并沒(méi)有太多的制度障礙，諸多問(wèn)題產(chǎn)生的原因在于各級(jí)政府對(duì)于應(yīng)承擔(dān)的責(zé)任沒(méi)有明確的分工。鄉(xiāng)村基礎(chǔ)教育投入需要進(jìn)一步完善分級(jí)管理體制，明確各級(jí)政府在教育補(bǔ)償經(jīng)費(fèi)籌措和管理方面的職責(zé)分工，確定一個(gè)合理的基礎(chǔ)教育補(bǔ)償?shù)姆謸?dān)比例。再次，加強(qiáng)財(cái)政轉(zhuǎn)移支付力度，平衡地區(qū)差距。轉(zhuǎn)移支付是財(cái)政資金在各級(jí)政府之間的一種再分配，有利于解決中央政府與地方政府的財(cái)政縱向不平衡和地區(qū)間財(cái)政橫向不平衡。轉(zhuǎn)移支付——財(cái)政的再分配——公共資源配置是平衡當(dāng)前我國(guó)農(nóng)村基礎(chǔ)教育財(cái)政投入地區(qū)間差異問(wèn)題的一個(gè)有效手段。最后，完善鄉(xiāng)村教育投入補(bǔ)償內(nèi)容與制度。包括鄉(xiāng)村基礎(chǔ)教育的成本補(bǔ)償、鄉(xiāng)村教育項(xiàng)目補(bǔ)償、鄉(xiāng)村教師工資福利補(bǔ)償、鄉(xiāng)村教師繼續(xù)教育補(bǔ)償、教育落后地區(qū)教育補(bǔ)償，鄉(xiāng)村特殊群體的教育救助與補(bǔ)償?shù)取?/p>

（2）師資力量補(bǔ)償。當(dāng)前，我國(guó)城鄉(xiāng)之間存在嚴(yán)重的教育差距和鴻溝，已不主要表現(xiàn)在受教育的規(guī)模、數(shù)量等“外延”方面，而主要表現(xiàn)在受教育的水平、質(zhì)量等“內(nèi)涵”方面[8]。教師是教育的第一資源，是教育變革的執(zhí)行者，是提高全民教育質(zhì)量的保證[9]。教師是教育資源中的人力資源、智力資源，是整合其他教育資源的主體，在整個(gè)教育資源體系中扮演著“驅(qū)動(dòng)”的角色，教育質(zhì)量在很大程度上依賴于教師的質(zhì)量。目前，鄉(xiāng)村教師資源存在總體數(shù)量不足，整體素質(zhì)偏低，學(xué)歷、年齡與學(xué)科結(jié)構(gòu)不合理，待遇低，隊(duì)伍不穩(wěn)定，流失嚴(yán)重等問(wèn)題。彌補(bǔ)鄉(xiāng)村與城市之間顯著存在的師資資源差距，便成為當(dāng)前我國(guó)在推進(jìn)區(qū)域教育均衡發(fā)展、實(shí)現(xiàn)城鄉(xiāng)教育一體化建設(shè)進(jìn)程中最迫切需要解決的關(guān)鍵問(wèn)題。第一，增加編制，總量擴(kuò)容。現(xiàn)行中小學(xué)教師編制標(biāo)準(zhǔn)是由教育部、財(cái)政部和國(guó)家編制辦于2001年聯(lián)合制定的。此教師編制標(biāo)準(zhǔn)缺乏對(duì)農(nóng)村地區(qū)實(shí)際的考量。農(nóng)村地廣人稀、居住分散，學(xué)校的布局也自然性的分散，學(xué)校規(guī)模小，但“麻雀雖小、五臟俱全”。由于寄宿制學(xué)校對(duì)生活教師和工勤人員編制的客觀需求、基礎(chǔ)教育新課程改革新增部分學(xué)科對(duì)專業(yè)教師的需求的增加、小學(xué)五年制向六年制過(guò)渡、企業(yè)學(xué)校移交地方等新情況的出現(xiàn)，較早制定的教師編制標(biāo)準(zhǔn)難以適應(yīng)這種變化，僅以生師比來(lái)決定農(nóng)村教師配額有失公平。同時(shí)，鄉(xiāng)村教師流失的現(xiàn)象比較嚴(yán)重，加劇了教師數(shù)量的不足。因此，根據(jù)鄉(xiāng)村教育發(fā)展的實(shí)際需求，補(bǔ)償所虧編制，彌補(bǔ)教師隊(duì)伍在數(shù)量、學(xué)科結(jié)構(gòu)等方面的不足。第二，提升教師福利待遇。在現(xiàn)行的教育投入機(jī)制中，農(nóng)村教師的津貼、福利待遇更多地是由當(dāng)?shù)乜h財(cái)政負(fù)擔(dān)。鄉(xiāng)村教師的福利待遇明顯低于城市是不爭(zhēng)的事實(shí)，這也嚴(yán)重地影響到教師的職業(yè)操守、敬業(yè)精神和隊(duì)伍穩(wěn)定。政府要調(diào)整現(xiàn)有政策，建立中小學(xué)教師工資福利由中央、?。ㄊ校┖涂h三級(jí)政府承擔(dān)制度。其中，大部分應(yīng)由中央和省級(jí)財(cái)政共同承擔(dān)。同時(shí)，建立鄉(xiāng)村教師工資專項(xiàng)補(bǔ)償制度，把農(nóng)村教師的福利待遇保障列入財(cái)政專項(xiàng)預(yù)算，并對(duì)經(jīng)濟(jì)發(fā)展?fàn)顩r不佳的縣市，由中央和省級(jí)財(cái)政統(tǒng)籌資金予以扶持。將農(nóng)村教師的住房、養(yǎng)老、醫(yī)療、保險(xiǎn)等納入國(guó)家財(cái)政預(yù)算，并由省級(jí)財(cái)政承擔(dān)，確保鄉(xiāng)村教師的待遇不低于同級(jí)的公務(wù)員。第三，破除阻隔城鄉(xiāng)教師流動(dòng)的體制藩籬。城鄉(xiāng)教師流動(dòng)制度的目的是實(shí)現(xiàn)城鄉(xiāng)教師的雙向、合理流動(dòng)和教師資源的均衡配置，促進(jìn)城鄉(xiāng)教育均衡發(fā)展。但教師流動(dòng)與教師工資制度、人事制度、編制等緊密聯(lián)系，這些制度直接關(guān)系到教師的個(gè)人利益。對(duì)于流向鄉(xiāng)村的優(yōu)質(zhì)教師資源（包括在職和新進(jìn)的教師），政府要制定相應(yīng)的政策措施，化解流動(dòng)中各種制度的沖突與阻力，消除優(yōu)質(zhì)教師資源向鄉(xiāng)村流動(dòng)的藩籬，在工資、福利、職稱、專業(yè)發(fā)展等方面專項(xiàng)補(bǔ)償流向鄉(xiāng)村的城市優(yōu)秀教師的教育付出。建立城鄉(xiāng)教師流動(dòng)的制度，實(shí)現(xiàn)優(yōu)質(zhì)教師資源在區(qū)域、城鄉(xiāng)、校際間的流動(dòng)。第四，教師專業(yè)發(fā)展。鄉(xiāng)村教師的專業(yè)發(fā)展問(wèn)題已成為制約我國(guó)教育城鄉(xiāng)均衡發(fā)展的

瓶頸，作為一個(gè)特殊的弱勢(shì)群體其專業(yè)發(fā)展問(wèn)題尤其值得關(guān)注。應(yīng)該在職進(jìn)修培訓(xùn)、遠(yuǎn)程教育培訓(xùn)、教育科學(xué)研究、學(xué)習(xí)交流等方面開(kāi)展補(bǔ)償教育，提升廣大鄉(xiāng)村教師的理論素養(yǎng)、信息素養(yǎng)、專業(yè)知識(shí)、教育科研能力、教育教學(xué)能力等，為鄉(xiāng)村教育的可持續(xù)發(fā)展提供智力支持。

2.特殊群體的教育補(bǔ)償。在教育群體中，由于社會(huì)與自然的諸多原因，那些對(duì)受教育機(jī)會(huì)、資源、權(quán)利的獲得與占有總是處于不利境地的特殊弱勢(shì)群體也是教育補(bǔ)償所關(guān)注的對(duì)象。一類是貧困地區(qū)的兒童，主要在中西部經(jīng)濟(jì)落后地區(qū)；一類是城市與農(nóng)村中教育處境不利的基礎(chǔ)教育適齡人口，如低收入家庭子女、留守兒童、流動(dòng)人口的子女、少數(shù)民族學(xué)生等；一類是特殊家庭子女，如殘疾兒童、智障兒童、孤兒、流浪兒童等。相對(duì)于其他群體而言，這些群體在正常情況下改變自身劣勢(shì)的能力有限，其教育的公平無(wú)法得到保障，需通過(guò)專門的幫助或補(bǔ)償才能獲得與其他群體相當(dāng)?shù)慕逃龣?quán)益。政府及非政府組織應(yīng)采取對(duì)口支援、項(xiàng)目工程、助學(xué)幫扶等措施對(duì)這些特殊弱視群體開(kāi)展教育補(bǔ)償，其方式主要有以下幾種。

發(fā)展性補(bǔ)償：指對(duì)教育弱勢(shì)地區(qū)開(kāi)展的以促進(jìn)發(fā)展和開(kāi)發(fā)的功能性補(bǔ)償，旨在幫助弱者自立、自強(qiáng)，提升自我整體發(fā)展與競(jìng)爭(zhēng)能力，并能快速地縮小與優(yōu)勢(shì)者的差距。如“國(guó)家貧困地區(qū)義務(wù)教育工程”等。

保障性補(bǔ)償：指針對(duì)基礎(chǔ)教育領(lǐng)域的生存與發(fā)展困境，實(shí)施政策傾斜，開(kāi)展重大項(xiàng)目，對(duì)弱勢(shì)地區(qū)、學(xué)?；蛘呷巳哼M(jìn)行有限的扶持，保障其基本的教育權(quán)益。如“貧困地區(qū)義務(wù)教育工程”“農(nóng)村中小學(xué)危房改造工程”等。

救助性補(bǔ)償：對(duì)處境不利的弱勢(shì)群體的補(bǔ)償，幫助他們擺脫教育困境，保障他們自身的受教育機(jī)會(huì)與權(quán)益。其主要對(duì)象是城鄉(xiāng)困難人群，如對(duì)農(nóng)村貧困學(xué)生的“兩免一補(bǔ)”政策、對(duì)困難家庭或個(gè)體的直接資助等。

幫扶式補(bǔ)償：政府與非政府組織以結(jié)對(duì)形式開(kāi)展的扶助措施。如各地的對(duì)口支援工程、“三支一扶計(jì)劃”、強(qiáng)校對(duì)弱校的幫扶、社會(huì)組織的家庭或個(gè)人對(duì)困難家庭與個(gè)人的扶助等。

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[責(zé)任編輯：慶來(lái)]

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Creative Team

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(Institute of Philosophy, Jishou University, Jishou, Hunan 416000, China)

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Scholar Officials’Politics and Literature in Kaizhou in Tang Dynasty and the Significance --An Investigation Based on Kaizhou Prefectural Governors Wei Chuhou, Tang Ci and Cui Taizhi

MA Qiang1,2
(1. School of History and Culture Study, Southwest University, Chongqing 400715; 2. School of History and Tourism, Shaanxi University of Technology, Hanzhong, Shaanxi 723001, China)

Key words: Tang Dynasty; Kaizhou; prefectural governors; change of habits and customs

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(School of History and Cultural Study, Western China Normal University, Nanchong, Sichuan 637009, China)

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[英文編輯：曾文武]