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基于C3理论,小学教师培训的政策执行SJD基本上是成功的。然而,从研究调查,在实现的过程中也有许多问题发生。如果这些问题能被解决好，政策的实施可能会更顺利。因此,基于上海SJD的实证研究,结合我在之前的分析框架,在小学教师培训政策的实现过程我发现如下一些问题：
当执行教育政策,一些当地教育部门和教育工作者不能结合当地条件的具体政策执行政策的时候,只是机械地执行政策。这种政策的实施发生在SJD,可进一步分为两类。首先,政策执行者SJD未能策融入特定的当地条件,只能机械性的实施。小学教师培训政策的源自于国家下发的政策,SEB通常是面向上层和宏观层的,符合全国的情况,但这只表示一般的方向和调节解决问题的基本原则。因此,有必要对当地教育部门和教育工作者根据当地条件可操作的决议。如果教育部门和教育工作者仅仅复制国家政策,这一政策很可能将在本地设置缺乏可操作性而不能实施,这实际上是一个玩忽职守的过程。其次,教育政策执行者在SJD策略时可复制其他地区的经验。中国是一个幅员辽阔的国家,实际情况变化从一个地方到另一个地方。
1. Problems of Policy Implementation of primary-school teachers’ training
As stated in C3, the policy implementation of primary-school teachers’ training in SJD is basically successful. However, from the study investigation, there are also many problems occurring in the process of implementation. If these problems can be solved as much as possible, the policy implementation will be more smoothly. Therefore, based on the empirical research of SJD of Shanghai, combining with the analytical framework I suggested in Chapter 2, I conclude problems occurring in the implementation process of primary-school teachers’ training policy. Problems are listed as follows.
1.1 Mechanical Policy Implementation
When implementing education policy, some local educational authorities and educators fail to combine the specific policy with the local conditions while carrying out the policy, but merely implement the policy mechanically. This kind of policy implementation occurs in SJD and which can be further divided into two categories. Firstly, policy implementers in SJD fail to integrate the general policy into the specific local conditions when implementing the policy. The primary-school teachers’ training policy made by the National MOE and SEB is often from upper hierarchy and oriented to the macro level, which serves the situation of the whole nation, only indicating the general directions and regulating the basic principles for solving a problem. Therefore, it is necessary for the local educational authorities and educators to make operable resolutions according to the local conditions. If the educational authorities and educators merely copy the national policy, it is likely that the policy will lack the operability in the local settings and cannot be carried out, which is actually a dereliction of duty. Secondly, education policy implementers in SJD would probably copy the experience of other regions. China is a vast country and the actual situations vary from place to place. If only copying the advanced implementation experience of primary-school teachers’ training policy from other places, it would also fail to suit the local conditions and hardly succeed.
1.2 Nominal Policy Implementation
As educational administrative authority, EBOSJD formulates and conveys teachers training policy to primary-schools. However, some educators merely call for the implementation of the teachers’ training policy without actually carrying it out, which is referred as nominal policy implementation. The nominal policy implementation usually can be divided into two types as well. The first is to implement some actual measures of certain aspects of the teachers’ training policy, but they do not effectively carry them all out. The second is that the lower level educational authorities merely make a simple appeal for the policy and thus the policy cannot be actually put into practice.
1.3 Selective Policy Implementation
The other problem is that some lower implementing organizations, based on their own interests, implement the relevant primary-school teachers’ training policies selectively, that is, carrying out the policy in a selective manner. Such kind of selective implementation not only affects the implementation by undermining the integrity of the teachers’ training policy, but also shakes the authority of the policy made by EBOSJD. The selective policy implementation can be divided into two types also: the first is to selectively implement a certain number of items in the primary-school teachers’ training policy to meet their own interests; the second is to implement one certain item to cater for their own interests.
1.4 Inconsistent Policy Implementation
When implementing primary-school teachers training policy made by EBOSJD, the lower local implementing organizations may add some contents that are not part of the original policy into the implementation of the teachers’ training policy, and even adding items that are incompatible or inconsistent with the original policy occasionally. These additional items of policy implementation tend to increase the cost of the implementation of teachers’ training policy for the SJD and reduce the effects of the policy implementation, thus affecting the realization of the policy goals.
2. Reasons of poor implementation of primary-school teachers’ training policy
According to the analytical model which modified from other scholars’ researches and suggested in Chapter 2, there are many factors influencing the policy implementation of primary-school teachers’ training programme. These factors include policy itself (e.g. policy goals and objectives), policy implementing organizations (the authoritative organizations and implementers), policy environment (e.g. political setting and economic development) and policy stakeholders. Teachers training policy is also a public policy and thus inevitably influenced by the above mentioned factors. In order to further analyze the primary-school teachers’ training policy in SJD, the following section will analyze the causes for the problems occurring in the process of teachers’ training policy implementation in SJD, which are based on the results of the questionnaire and interviews and in accordance with these hypotheses of this study. Also, the society in China is relatively stable nowadays, and Shanghai is a city with excellent economic development, these environmental conditions prompt the successful implementation of primary-school teachers’ training policy. Thus, I focus the influencing factors on the other variables.
2.1 Policy deficiency
Primary-school teachers’ training policy is the direct reason of the policy implementation activities; also its own characteristics are vital variables affecting the implementation effectiveness. Many experts and scholars on policy implementation believe that the significant causes for policy implementation failure lie in inappropriate policy design, incomprehensive thinking, and incomprehensive planning. Teacher training policy, as the attempt of the education policies designers, will inevitably has its own limitations and deficiencies, and it requires us to discover and correct them for improvement in the course of policy implementation. The deviations in the course of policy implementation have much to do with the deficiencies in the policy per se.
2.1.1 Unclear policy objectives
Policy objectives should be concrete and clear, and in a sequence according to the importance. It’s not only the foundation of policy evaluation, but also the basis for implementers to understand the policy and earn social support. Otherwise, the implementers would have differentiated understandings based on their different knowledge experiences, value, and recognition level, which may lead to various implementation results. Bardach (1986) pointed out that the reason why policies objectives will be altered to some extend in the course of implementation is that it needs redefinition in the context of unclear meaning or it needs adjustment because of the shaky foundation of the policy. The unclear and abstract policy objective will lead to incomprehensive or even wrong understanding of the policy. The objectives of teacher training policy are mostly described in vague language, only listing qualitative objectives in general but seldom quantitative indexes. However, the property of the policy objective will directly affect difficulty of policy implementation. It is comparatively difficult for local governments, education authorities and educators to implement the policies as teachers’ training policy with only qualitative but no quantitative index. It is inconvenient to orientate, mobilize resources for and evaluate implementation because lack of quantitative description. What’s more, it is difficult to evaluate the effectiveness of policy implementation since teachers’ training policy has no strictly confined population, scientific implementing procedure and accurate evaluation criteria.
2.1.2 Policy resources shortage
The successful and effective implementation of any policy must be guaranteed by certain policy resources, which usually include financial resources, human resources and economic resources. So it is with teachers’ training policy. First of all, financial resource is of vital importance since it is the financial basis of other resources. Many educational policy implementations in America are accompanied with financial allocation, or say, it is the incentive and support for policy implementation. Comparatively, one of the important causes for the unsuccessful implementation of teacher training policy which cannot fulfill the expected objectives to the large extend, is the insufficient or unstable financial input. Financial sectors below provincial level should jointly be responsible for the implement expense of teachers’ training policy. However, the responsibility lays mainly in county and town finance in the course of implementation, and moreover town finance should also be responsible for schools at this level. It is easy and stable to raise educational fund in economic developed areas, but comparatively it is difficult to do so in economic developing areas. No wonder problems crop up in the policy implementation. Secondly, the effective implementation of teachers’ training policy should be guaranteed by human resources. Qualified implementers are vital to the successful implementation. However, there are unqualified leaders, administrative staff, and teachers, loss of young excellent teachers, unqualified freshman in normal university, and etc., which truly reflect the deficiency in human resource input in teachers’ training policy in China. Finally, economic resources can also affect the implementation. Without economic resources, it would be impossible to fully implement the policy. In reality, the economic conditions of many schools are under the standard, and the gap between schools in town and city is unbelievable wide. Though policies have been carried out, it is with minimal success. |
