校长视角下的义务教育教师流动状况调查分析

The principal obligations under the perspective of education teacher flow condition investigation analysis

我国基础教育正逐步走向均衡，越来越多的孩子享受到优质教育。（资料图片） China's elementary education is gradually toward equilibrium，More and more children enjoy the high quality education。（Material picture） 中国教育科学研究院 China's education scientific research institute

　　教育大计，教师为本。有好的教师，才会有好的教育。《国家中长期教育改革和发展规划纲要（2010-2020年）》明确把均衡发展作为义务教育的战略任务，要求切实缩小校际差距，均衡配置教师等资源，实现县（区）域内教师交流，推进义务教育学校标准化建设。各地纷纷采取各种形式制度化推进学校间教师流动，作为县（区）域内促进义务教育均衡发展的一项重要举措。

Education for，The teacher for this。A good teacher，Will have a good education。《National medium and long-term education reform and development plan outline（2010-2020）》Clear the balanced development of compulsory education as a strategic task，Requirements and narrow gap between schools，Equilibrium configuration teacher resources，Realize county（area）Domain teacher exchanges，Propulsion obligation education schools standardization construction。All are taking various forms institutionalization propulsion school teacher flow between，As a county（area）Domain to promote the balanced development of compulsory education is an important measure。

　　为了解校长对教师正向流动状况及其效果的评价，调研组在全国24个省（自治区、直辖市）的168个县（市、区）按比例抽取11867名校长进行问卷调查，其中城镇校长占23.27%、农村校长占76.73%，校长平均教龄为25年，担任校长职务的平均时间为6.3年。经过问卷处理，调查主要结果如下。

In order to understand the principal to teacher forward flow condition and results of evaluation，In the national research group of 24 provinces（Autonomous region、Municipality directly under the）Of the 168 counties（city、area）Scale extraction 11867 principals questionnaire survey，The town the principal accounted for 23.27%、Rural principal accounted for 76.73%，The headmaster average of school age for 25 years，As the principal position for an average of 6.3 years。Through questionnaire processing，Investigation main results as follows。

　　对缩小校际差距意义重大

Schools to narrow gap is of great significance

　　八成多的校长认为该政策对本区义务教育均衡发展有正向效应；近八成的校长认为本政策有助于提高教师的工作积极性

More than eighty percent of the principal think this policy on the balanced development of compulsory education to have a positive effect；Nearly eighty percent of the principal think this policy helps to improve teachers' work enthusiasm

　　从教师流动带来的均衡效应看，86.74%的校长认为该项政策有助于促进本县区教育均衡发展；85.40%的校长认为该项政策有助于优化教师资源配置；82.11%的校长认为有助于提高整个县区教师整体教学水平；80.34%的校长认为有助于提高本县区教育的整体质量；78.24%的校长认为有助于提高教师工作的积极性；66.63%的校长认为有助于加强教师管理。

From the teacher flow brings balance effect to see，86.74% of the principals that the policy promotes the county education balanced development；85.40% of the principals that the policy helps to optimize the teaching resource allocation；82.11% of the principals that help to improve the whole county teachers' teaching level；80.34% of the principals that help to improve the overall quality of the county education；78.24% of the principals that help to improve the enthusiasm of teachers' work；66.63% of the principals that help to strengthen teachers' management。

　　相比而言，农村校长更认可该项政策，认为学校在城乡学校教师流动中能够受益，能够提高本校教学水平，提高教师工作积极性。

compared，Rural principal more recognized the policy，Think the school in the city and countryside school teacher flow can benefit from，Can improve the teaching level，To improve teachers' work enthusiasm。

　　为学校增添生机和活力

For the school to add vitality and vigor

　　九成校长认为教师流动政策能够解决部分学科教师不足问题；八成校长认为该政策有助于提高教师的教学水平并缓解教师职业倦怠感

Ninety percent principals that teacher flow policy can solve part of the subject teacher shortage problem；Eighty percent of the principal think this policy to enhance teachers' teaching level and relieve teachers' professional taedium vitae

　　本次调查发现，校长们比较肯定教师交流政策的正向效应，农村校长持肯定态度的比例普遍高于城市校长。91.24%的校长肯定教师流动政策能够解决部分学科教师不足的问题；81.52%的校长认为有助于提高学校教师的教学水平；80.07%的校长认为有助于缓解教师职业倦怠感；分别有53.81%的校长认为有助于提高学校声誉；42.56%的校长认为有助于提高学生的积极性。

The survey found，The headmaster is sure the teacher exchange policy positive effect，A headmaster in a rural area of positive proportion of general prep above the principal city。91.24% of the principal must teacher flow policy can solve the problem of shortage of teachers of the school；81.52% of the principals that help to improve school teachers' teaching level；80.07% of the principals that can help alleviate the teacher professional taedium vitae；53.81% of principals that help to improve school reputation；42.56% of the principals that help to improve the students' enthusiasm。

　　不一定都会产生正向效应

Not necessarily will have a positive effect

　　七成校长认为流入教师可能不是学校需要的；五成校长认为难以满足交流进来的教师的需求

Seventy percent principals that flows into the teacher may not be school need；Fifty percent of the principal think are difficult to meet the demand of communication in teachers

　　有不少校长对教师流动政策对本校工作的作用持否定态度，中部、农村地区校长持此观点的比例较高。72.7%的校长认为流入教师不是学校需要的；52.82%的校长认为很难满足交流进来的教师的所谓需求；40.36%的校长认为交流来的教师不好管理；36.18%的校长认为教师交流不利于教师队伍的稳定性；22.9%的校长认为教师交流扰乱正常教学活动。分地区看，57.14%、54.86%的中部、农村校长认为该项政策满足交流进来的教师的需求很困难，比东部、城市校长高7.26%、8.79%；44.59%、41.57%的中部、农村校长认为交流来的教师不好管理，比西部、城市校长高8.44%、5.2%；38.31%、36.92%的中部、农村校长认为该项政策不利于教师队伍的稳定，比东部、城市校长高9.37%、3.16%。

There are many principals to teacher flow policy on the school of the function of the negative attitude，central、Rural areas the headmaster to hold this view of the higher proportion。72.7% of the principals that flows into the teacher is not school need；52.82% of the principals that it is difficult to meet the exchange of teachers in the so-called demand；40.36% of the principals that exchange teachers to come to bad management；36.18% of the principals that teachers exchange go against the stability of the teachers；22.9% of the principals that teachers to disrupt normal communication teaching activities。Points area see，57.14%、54.86% of the central、Rural principals that the policy meet the demand of communication in teacher is very difficult，Than eastern、The principal city high 7.26%、8.79%；44.59%、41.57% of the central、Rural principals that exchange teachers to come to bad management，Than western、The principal city high 8.44%、5.2%；38.31%、36.92% of the central、Rural principals that the policy go against the stability of pedagogic team，Than eastern、The principal city high 9.37%、3.16%。

　　政策执行面临制度性障碍

Facing the policy implementation institutional obstacles

　　八成多校长认为教师聘任制、职称聘任制是实施教师流动政策面临的主要制度性困难

More than eighty percent of the principal thought of teachers' appointment system、Title appointment is teacher flow policy implementation of facing the main institutional difficult

　　日本、韩国教师都是公务员，统一归政府管理，流动起来没有多大障碍。而我国义务教育教师岗位是由教育行政部门或学校根据教育教学需要设置的，学校通过与教师签订聘任合同聘请教师，这种聘任制决定教师学校单位归属性很强，有碍于教师在学校之间流动。因此，在调查中可以看出，对于教师流动政策面临的主要障碍，较多校长认为是教师聘任制和职称聘任制，分别有47.83%、39.26%的校长选择该项；有33.60%的校长认为是交流配套经费制度未建立或者不健全，农村校长选择此项的居多；34.20%的校长认为是教师绩效评价制度迫使校长争夺优秀教师资源，城镇校长选择此项居多；选择户籍制度的校长比例最少，仅为3.02%。（见图1）

Japan、South Korea teachers are all civil servants，Unified to the government management，Flow up not much obstacle。And our country compulsory education teachers' position is by the education administrative department or the school according to the education teaching needs to set，Schools and teachers through an employment contract shall be signed recruiting teachers，This appointment system decided to teachers' school unit GuiShuXing is very strong，Hindrance to the teacher in the school flow between。therefore，In the survey can be seen in，For teacher flow policy facing the main obstacle，More principals that is the teacher appointment system and professional title appointment system，There were respectively 47.83%、39.26% of the principal of the choice；33.60% of the principals that is communication supporting funds system has not been established or not perfect，Rural principal choice of the majority；34.20% of the principals that is a teacher performance appraisal system forced the headmaster for the excellent teacher resources，The principal choice in this town；Choose the household registration system principal proportion at least，Is only 3.02%。（See figure 1）

　　受制于学校发展差距

Subject to the school development gap

　　五成多校长将学校间办学条件差距和教师发展机会差距看作阻碍教师流动政策实施难的主要因素

More than fifty percent of the principal will school running conditions between the gap and teacher development opportunity gap as hindering a teacher flow policy implementation difficult main factors

　　由于不同学校建校历史、所处地理环境、经费投入等因素影响，区域内学校之间办学条件、学生来源、教师收入和教师发展机会等存在一定差距，这些因素将会阻碍教师流动政策的贯彻落实。

Due to the different school school history、The geographical environment、The impact of factors such as the funds investment，Area between school running conditions、Student source、Teachers' income and teacher development opportunities, and has certain gap，These factors will hinder the teacher flow policy implementation。

　　在诸多因素中，校长认为校际办学条件差距和教师发展差距是本地阻碍教师流动政策贯彻落实的主要因素。其中，70.31%的校长选择校际办学条件差距，中西部、农村地区校长选此项的较多；48.81%的校长选择校际教师发展机会的差距，东部、城市地区校长选此项的较多。除此之外，还有34.08%的校长认为是学校所在社区环境的差距；21.61%的校长认为是校际生源的差异；20.7%的校长认为是校际教师工资以外收入差距。认为优质学校师资将被削弱的校长最少，仅有11.09%的校长将其列为影响因素。

In many factors，The principal think intercollegiate conditions for running the gap and teacher development gap is local block teacher flow policy implementation of the main factors。the，70.31% of the principal choice conditions for running schools gap，Midwest、Rural areas the principal choose the more；48.81% of the principal choice intercollegiate teacher development opportunity gap，eastern、Urban areas the principal choose the more。In addition，There are 34.08% of the principals that is the school community environment of the gap；21.61% of the principals that is the difference of inter-school students；20.7% of the principals that is outside schools teachers' salary income gap。Think the quality school teachers will be weaken the headmaster at least，Only 11.09% of the principal as its influence factors。

　　优先选择中上水平教师进行流动

Preference above the average flow of teachers

　　五成校长优先选择教学能力强的教师或根据个人需求进行交流；仅一成校长优先派不胜任本校教学的教师进行交流

Fifty percent of the principal priority choose teaching ability of teachers or according to the personal needs to communicate；Only ten percent of the principal priority pie is not up to the school teaching teachers to exchange

　　在调查中发现，学校迫于流动指标压力，执行教师交流政策敷衍了事，“轮差不轮好，流下不流上，换人不交心”。优秀、特级教师不参加交流，好学校不参加交流；流入地学校既不接受业绩落后的教师参加交流，也不接受质量落后学校的教师参加交流；即使交流进来的教师，教学技能和管理能力也较差。调查发现，25.17%的校长优先选择教学能力强的教师进行交流，其中农村校长比城市校长高9.88%；24.96%的校长根据个人需求进行交流，其中城市校长比农村校长高8.54%；17.42%的校长根据流入学校需要派出教师，其中城市校长比农村校长高4.81%；11.23%的校长优先派不胜任本校教学的教师进行交流，其中农村校长比城市校长高6.52%；11.55%的校长优先派超编学科教师进行交流；2.53%的校长优先选择不适应人际关系的教师进行交流；有2.64%和1.58%的校长选择新毕业教师和准备晋升的教师进行交流。（见图2）

In the survey found，Schools are under pressure flow index，Implement the teacher exchange policy perfunctory，“Wheel difference not wheel good，Not flow down，Substitution not heart”。excellent、Superfine teacher does not participate in the exchange，Good school does not participate in the exchange；Defined the school did not accept performance backward teachers to take part in communication，Don't accept quality behind the school teachers to take part in communication；Even if the communication in the teacher，Teaching skills and management ability is poor。Survey found，25.17% of the principal priority choose teaching ability of teachers to communicate，The rural the principal city 9.88% higher than the headmaster；24.96% of the principal according to the personal needs to communicate，The principal cities than in rural areas the principal high 8.54%；17.42% of the principal according to into the school need to send teachers，The principal cities than in rural areas the principal high 4.81%；11.23% of the principal priority pie is not up to the school teaching teachers to exchange，The rural the principal city 6.52% higher than the headmaster；11.55% of the principal priority pie exceed subject teachers to exchange；2.53% of the principal priority choose not to adapt to the interpersonal relationship of teachers to communicate；With 2.64% and 1.58% of the principal choose new graduate teachers and ready to promotion of teachers to communicate。（See figure 2）

　　校长对农村教师进城持不同看法

The principal of rural teachers into the city hold different opinions

　　六成校长对农村教师招考进城持支持态度，主张要给农村优秀教师发展机会

The headmaster sixty percent for rural teachers admit by examination into the city the support manner，That will give rural excellent teacher development opportunities

　　目前我国整个教师队伍存在的突出问题是，由于前几年农村民办教师转正，以及适龄儿童入学高峰已过，导致农村教师严重超编。而在城区，随着城市化进程的加快，大量农村人口进城务工，城区学校快速扩张，又导致城区教师严重不足。所以有些区县通过农村教师招考的方式使其进城，以促进城乡教师结构的合理配置。校长们对农村教师进城如何看待呢？从调查分析中可以看出，63.48%的校长对农村教师招考进城持支持态度，支持的原因主要是应给农村优秀教师发展的机会；35.12%的校长持反对态度，反对的主要原因是当前农村学校缺乏优秀师资。他们认为，如果大批农村教师被招进城，师资力量原本薄弱的学校就会进一步“塌陷”。

At present our country the whole teachers the existence prominent question is，A few years ago due to the rural teacher of run by the local people become a full member，And school-age children entrance peak has passed，Rural teachers lead to serious exceed。And in urban areas，With the acceleration of urbanization，A large number of rural migrant workers population，Rapid expansion of city schools，Urban and lead to a serious shortage of teachers。So some area county through the rural teacher admit by examination way to make it into the city，In order to promote urban and rural teacher structure reasonable configuration。The principals of rural teachers into the city how to treat？From the survey analysis can be seen in，63.48% of the principal for rural teacher recruitment support into the city the attitude，Support are the main reasons why should give rural excellent teachers the opportunity of the development；35.12% of the principal disapprove，Against the main reason is the current rural schools lack of excellent teachers。They think，If a large number of rural teacher was called into the city，Teachers had weak school will further“collapse”。

　　流动规模应当适度

Flow scale should be moderate

　　七成多校长认为应当建立全体教师和校长流动制度

More than seventy percent of the principals that shall establish all the teachers and the headmaster flow system

　　从教师流动规模看，有的地区尝试实施大规模流动，即全体学校教师轮岗交流。但较多人不看好这种做法，认为大规模教师流动会影响学校的正常教学秩序。就目前现状而言，更多地区实施小规模教师流动。本调查显示，77.89%的校长认为教师流动不应当仅局限于小部分教师，其中，同意建立全体教师流动制度的校长占58.15%；完全同意建立全体教师流动制度的校长占17.87%；76.02%和74.88%的校长认为应当建立全体教师流动制度和全体校长流动制度，其中，同意建立全体校长流动制度的校长占60.38%，完全同意建立全体校长流动制度的校长占14.5%。

From the teacher flow scale to see，Some areas try to implement mass flow，That is all school teachers work shift communication。But more people do not expect this kind of practice，Think large-scale teacher flow will affect the normal order of teaching in schools。The present situation is concerned，More region small teacher flow。This investigation shows that，77.89% of the principals that teacher flow should not only limited to small teachers，the，Agreed to set up all the teacher flow system principal accounted for 58.15%；Totally agree to establish all the teacher flow system principal accounted for 17.87%；76.02% and 74.88% of the principals that shall establish all the teacher flow system and all the principal flow system，the，Agreed to set up all the principal flow system principal accounted for 60.38%，Totally agree to establish all the principal flow system principal accounted for 14.5%。

　　需要淡化“单位人”身份

Need dilution“Unit people”identity

　　不到一半的校长同意教师交流时人事关系与原校分离

Less than half of the President agreed to teachers exchange personnel relationship and the original school separation

　　教师流动要深化改革教育人事管理制度，淡化教师身份管理与教师校籍，强化教师区域管理，使教师的流动不受所属学校的限制。多数地区教师流动人事关系不离开原校，也有的地区尝试把流出教师的人事关系彻底调到流入学校。

The teacher flow to deepen reform education personnel management system，Desalination teacher identity management and teachers school record，Enhancing the teachers' regional management，Teachers flow from belong to the limitation of the school。Most area teacher flow human relations KaiYuan from school，Also some areas try outflow teacher's human relations thoroughly transferred to into the school。

　　调查发现，44.61%的校长同意教师交流时人事关系离开原校，东部地区同意的比例高于西部地区，城市校长同意的比例高于农村校长。其中，城市校长同意教师交流时人事关系离开原校的比例占46.69%，农村校长占43.98%；东部地区校长同意教师交流时人事关系离开原校的比例占49.05%；中、西部地区校长同意的比例分别占40.01%、43.98%。

Survey found，44.61% of the headmaster agreed to teachers exchange human relations to leave the school，The eastern region agree with higher proportion of the western region，Urban principal agree with higher proportion of rural the headmaster。the，City the headmaster agreed to teachers exchange human relations from the original school proportion accounted for 46.69%，Rural principal accounted for 43.98%；The eastern region President agreed to teachers exchange human relations from the original school proportion accounted for 49.05%；in、The western region the headmaster agreed 40.01% and respectively、43.98%。

　　需要明确流动年限

Need to clear the flow fixed number of year

　　校长认为教师交流出去的合理期限应为2至4年；西部地区校长认为教师交流出去的合理期限明显高于中、东部地区

The principal think visiting teachers out of the reasonable time should be 2 to 4 years；The western region the principal think visiting teachers out of the reasonable time in significantly higher than、The eastern region

　　江苏省规定教师在同所学校任职不能超过6年，引起了不少争议。本调查发现，如果采取人事关系留原校的方式，校长认为教师交流出去的合理期限为1.89年到3.64年；如果人事关系随人走，校长认为教师交流出去的最低合理期限为3.31年到6.32年。如果实施校长流动，校长认为校长在一所学校的平均合理任期为3.76年到6.84年。城乡校长和不同地区校长对该问题看法有显著差异。农村校长认为教师交流出去的合理期限高于城市校长，西部地区校长认为教师交流出去的合理期限明显高于东、中部地区。

Teachers in jiangsu province provisions with school for no more than 6 years，Caused a lot of controversy。The survey found，If take human relations leave the original school way，The principal think visiting teachers out of the reasonable time is 1.89 years to 3.64 years；If human relations with people walk，The principal think visiting teachers out of the lowest reasonable time is 3.31 years to 6.32 years。If the principal flow，The principal think the President in a school average reasonable term is 3.76 years to 6.84 years。The principal and the urban and rural areas in different areas of the principal problems have significant difference。Rural principals that teachers exchange out of the reasonable time above the city the headmaster，The western region the principal think visiting teachers out of the reasonable time east markedly higher、The central region。

　　流动成本应当合理分担

Current cost should be reasonable sharing

　　两成多学校的教师流入有成本；五成学校流入教师的经济成本主要由区县承担

More than twenty percent of the school teachers into the cost；Fifty percent of the school into teachers' economic cost mainly by area county bear

　　教师无论是自然流动还是非自然流动，从他离职开始到替换结束的整个过程中，会产生各种货币性或非货币性支出，即形成教师流动成本，比如交通费、住宿费和津贴补贴等。调查发现，73.83%的学校校长表明教师流入没有成本，25.81%的校长表明有流入成本。负担有流入成本的教师平均一年比本校普通教师多支出3105元。教师流入城市学校的成本较高，每名教师流入城市学校多支出4985元，流入农村学校多支出2601元。由区县承担流动教师经济成本的占37.94%；区县和学校共同承担的占10.34%；由流入学校承担的占18.95%；由流入学校和其他群体共同承担的占7.25%；由流出学校承担的占11.55%；由教师自己承担的占9.78%；由学区单独或合作承担的最少，仅占4.2%。

The teacher whether natural flow or the natural flow，From his exit start to replace the end of the whole process，Will produce all sorts of monetary or non-monetary expenditure，That is a teacher to develop current cost，Such as transportation、Accommodation and allowances and subsidies, etc。Survey found，73.83% of the school principal show that teachers into no cost，25.81% of the principal show that have into the cost。Burden have into the cost of the teachers' average a year than the ordinary teachers pay 3105 yuan。Teachers into the cities school cost is higher，Every teacher into city schools pay 4985 yuan，Into the rural school much spending 2601 yuan。By area county bear flow teacher economic cost 37.94%；Districts and counties and schools take on together accounted for 10.34%；The school take into accounts for 18.95%；By into schools and other groups take on together accounted for 7.25%；The school take out 11.55%；The teacher pay themselves accounted for 9.78%；The school district alone or cooperation take at least，Only 4.2%。

　　应当优先保证学科均衡

Priority shall be given to ensure balanced subject

　　九成校长认为学校有科目缺少教师，心理、音乐和美术教师缺编严重

Ninety percent principals that schools have subjects lack of teachers，psychological、Music and art teacher vacancy serious

　　教师超缺编问题长期存在，缺编主要集中在音、体、美科目，超编主要集中在语文、数学等学科。如北京市中小学体育教师缺编比例在15%至20%。本项调查显示，91.56%的学校表示有科目缺少教师，17%的学校表示有科目存在超编教师。缺编科目中心理健康教师缺编最为严重，63.5%的学校缺乏心理健康教师，63.17%的学校音乐科目缺编，58.64%的学校美术科目缺编，45.93%的学校信息技术科目缺编，45.65%的学校体育与健康科目缺编，化学科目缺编学校最少，为5.26%。农村学校缺编比例最高，95.95%的农村学校教师缺编，城区学校这一比例为81.92%。

The teacher super vacancy problem to exist for a long time，Vacancy mainly concentrated in the sound、body、Beauty subjects，Exceed mainly concentrated in the study of language、Subjects such as mathematics。Such as Beijing primary and secondary school physical education teachers vacancy rate in 15% to 20%。The investigation shows that，91.56% of the school said subjects lack of teachers，17% of the school said subject exist exceed teachers。Vacancy subjects mental health teachers most serious vacancy，63.5% of the school teachers lack of mental health，63.17% of the school music subject vacancy，58.64% of the school art subject vacancy，45.93% of the school information technology subject vacancy，45.65% of the school physical education and health course vacancy，Chemical subject vacancy school at least，Is 5.26%。Rural schools has the highest percentage of vacancy，95.95% of rural school teacher vacancy，City schools were the proportion is 81.92%。

　　83%的校长表示学校不超编。超编学校比例最高的前三个科目为语文、数学、外语，分别为8.68%，7.63%，3.99%。城区学校超编比例较高，为24.65%；农村学校超编比例最低，为10.2%。教师超编比例最高的是独立初中，为38.39%；城镇学校超编比例较高，为48.76%；教学质量水平较低的学校超编比例较高，为41.46%；东部和西部地区学校超编比例较高，分别为18.96%和18.32%，中部地区学校超编比例相对较低，为13.85%。

83% of the principal said the school does not exceed。Exceed the school scale the top three subjects for Chinese、mathematics、Foreign language，Were 8.68%，7.63%，3.99%。City schools exceed the higher percentage，Is 24.65%；The rural school exceed the lowest proportion，Is 10.2%。The teacher exceed the highest proportion is independent junior middle school，Is 38.39%；City schools exceed the higher percentage，Is 48.76%；The teaching quality level is low school exceed the higher percentage，Is 41.46%；The east and west area school exceed the higher percentage，Were 18.96% and 18.32% respectively，The central region school exceed ratio is relatively low，Is 13.85%。

　　山东省邹平县实验中学的一位老师在开展教学帮扶交流工作。 董乃德 摄（资料图片）

Shandong zouping county in the experimental middle school of a teacher in teaching supporting exchange work。 DongNaiDe perturbation（Material picture）

　　图1 实施教师流动政策面临的主要制度性困难

Figure 1 teacher flow policy implementation of facing the main institutional difficult

　　图2 校长优先派遣交流教师的类型

Figure 2 principal preferred to send exchange teacher's type

　　(来源:中国教育报)

(Source: China education report)