中小学公民教育政策：变迁与展望

　　　　　　　　　　　　　　　　　　　　摘　　要



 



　　我国现代化建设引发了深刻的社会转型。传统社会向现代社会过渡是一项艰巨的历史使命，它内在地要求公民意识、公民道德和公民理性健全地发展，使公民社会尽快得到发育，社会形成自我调节的良性发展机制。然而，公民资质不是自然形成的，需要通过教育来养成。实现公民教育不仅是教育理想，也是政治理想。当前，在我国学校教育中，以政治思想和道德教育为核心的公民教育无法有效实现培养现代公民的目标。我国社会转型期寄希望于通过中小学公民教育培养健全的公民，公民教育政策创新已成为政府无法回避的话题。



　　公民教育政策是政府、执政党或其他社会公共权威部门，在一定历史时期，为开展公民教育、养成公民基本价值观、传授公民知识与技能、培养社会合格公民所制定的行动准则。公民教育政策对公民教育具有管制、引导、调控、分配的功能。从公共政策构成要素的角度看，公民教育政策的价值取向、政策目标、政策内容、实施途径和保障措施构成了公民教育政策的五个基本要素，它们决定了学校教育中公民教育的理念、目标、内容、方法和效果，并构成了本研究剖析社会转型期我国公民教育政策变迁、建构与改进的基本分析维度。



　　改革开放以来，我国中小学公民教育政策历经演变，在政策目标、内容和实施方面呈现出明显的阶段性特征：在恢复重建期，政策目标定位于培养有觉悟的劳动者，以思想政治和道德教育为主；在加快发展期，政策提出了“四有公民”的培养目标，初步建立了德育政策体系；在调整充实期，政策价值取向重新强化了意识形态政治要求，转为培养“社会主义事业的建设者与接班人”；在提升推进期，政策提出了素质教育的价值取向，正式设置公民教育知识课程，并将心理健康教育、环境教育、科学教育等纳入公民教育范畴；在扩展丰富期，政策突破性地提出了“合格公民”的培养目标，并将人权教育、公共安全教育纳入中小学公民教育课程。经过30多年的变迁，我国中小学公民教育政策价值取向日益重视学生的主体性，政策目标定位逐步切合我国经济、社会发展的现实需要，政策变迁层面逐步从外围层深入中间层，政策实施方式逐步从以课堂教学为主，转向课堂教学、学科渗透与实践活动并重，政策保障措施逐步从完全依靠学校，转向全社会共同参与。在肯定我国中小学公民教育政策取得了长足进步的基础上，也应看到当前公民教育政策仍存在诸多局限，例如政策对中小学生的政治要求超越了其认知水平；政策目标培养功能单一，未能体现立体的现代公民角色；政策内容零散、重复，缺乏系统思考和有效整合；政策变迁停留在表浅层面未触及公民培养的核心理念等。依附观念浓厚的人治思想、培养圣人的儒家文化、政策评估机制欠缺、政策变迁存在路径依赖等是造成以上政策缺失的主要原因。



　　对国内6个城市学校公民教育政策实施的调查表明，当前学校公民教育政策实践中仍存在以下问题：中小学公民教育政策的制定未能让教师和家长参与，政策的学科类课程内容与现实生活脱节，活动性课程无法充分开展，教师的教育理念、教学方法离实施公民教育的要求有差距。究其原因，政策制定“内输入”为主削弱了政策的民主性、科学性，政策实施未得到应有的重视和支持，部分教师不具备开展公民教育的知识和技能，政策实施所需的公民文化缺失等影响了政策实施的效果。国际比较研究表明，美国、英国、日本三国均重视公民教育政策的制定与实施，政策内容勾勒了完善的现代公民教育体系，政策制定过程发动全社会广泛参与，并将全球教育作为政策的重要组成部分。



　　要使我国中小学公民教育政策切合社会转型的需要，我国政府就要克服政策变迁的路径依赖，采取将政策变迁推进到政策核心层的方式推进政策创新。首先，分层设置公民教育政策价值取向，从最基本的培养具有爱国精神、守法意识和基本道德的国家公民，到培养具有参与意识、理性精神和合作能力的社会公民，进而培养具有宽容精神、全球意识和多元文化理念的全球公民。其次，完善中小学公民教育政策体系。采取体现公民教育核心理念的政策价值取向，设置有利于学生公民资质形成的政策目标，围绕公民知识、公民能力和公民德行安排课程，以学科渗透、校园文化、网络技术等多渠道推进政策实施，依靠师资队伍建设、管理制度完善和公民文化培育等提供政策保障。最后，全面创新我国中小学公民教育政策构成要素。将政策价值取向从培养服从性人格转向孕育健全独立人格；政策培养目标从国家公民扩展至多维立体的公民；政策内容从以德育为主转为以培养公民为主线的全方位教育；政策实施从德目主义教育模式转为综合教育模式；政策保障以教师队伍专业发展和全社会公民文化培育为重点。



　　社会转型是一个长期追求的目标，公民教育政策创新也非一朝一夕能成功。在公民文化相对缺乏的环境下，我国中小学公民教育政策改进将会面临各种困难和压力，公民教育政策创新能够顺利推进，政府的决心和意志起着至关重要的作用。



 



关键词：社会转型　公民教育　公民教育政策　公共政策分析



 



 



　　　　　　　　　　　　　　　　　　　　Abstract



 



　　China’s modernization led to the rapid and profound
social transformation. The transition from traditional society to modern
society is an arduous historical mission. It inherently requires the sound
development of the citizenship and civil society. However,citizenship is not
natural formation of humanity,it is developed through education. In our
schools,civic education practice is weak. With the political,ideological and
moral education as the core,our civic education can not effectively achieve the
goal of cultivating modern citizens. Civil education is not only an educational
ideal,but also a political ideal. The lagging behind of our civic education to
some extent rooted in the flaws of civic education policy.



　　Civil education policies are the guidelines developed by the government,the
ruling party and other public authorities,in a certain historical period,to
conduct civic education,to develop basic civil values,to teach civic knowledge
and civic skills,aiming at training qualified citizen of community. Civil
education policies have the functions to guide and control civic education.
Values of education policy stipulates the concept of civic education,training
objectives specify the policy task of civic education,content of the policy
frames the civic education curriculum,implementation of the policy decides the
ways and means of civic education,security measures influence the policy
effects of civic education.



　　Since the Reform and Opening up,elementary and middle schools’ civic education policies of China have experienced changes. In the stage of
reconstruction,civic education policy aimed at training workers with socialist
consciousness. It conducted the basic knowledge of political and moral
education. In the stage of acceleration,policy on civic education established the
goal of training citizens with“ideals,morality,culture and discipline”,and
initially formed moral education policy system. In the stage of
adjustment,civic education policy gave top priority to political orientation.
The training objective adjusted to“builders and successors of socialist career
of China”. In the stage of promotion,policies on civic education required to
carry out quality education and formally set civics courses,with mental health
education,legal education,science education and environmental education as
important parts. In the stage of extension,moral training objective was revised
to“qualified citizens”,with human rights education,public safety education
included in civic education.



　　Elementary and middle schools’ civic education policies of China in transformation reflect progressive trends.
Policy values-orientations emphasized the subjectivity in
student. Policy targets gradually meet the practical needs of economic and
social development. Policy changes gradually shift from the outer layer deep
into the middle layer. Implementation of the policy turned from only relying on
the classroom teaching,to both academic and practical activities infiltration.
Policies security measures gradually turned from entirely relying on school to
participation of the whole society.



　　There are also a number of shortcomings in the elementary and middle
schools’ civic education policies of China. The political
requirements are too high for the young students. Policy objective is limited
and can not reflect the three-dimensional character of modern citizen. Policy
content lacks of effective integration. Policy changes did not reach the core
concept of civic education. The rule-by-leader thought,Confucian sage tradition,the lack
of the evaluation mechanism,and the existence of path dependence all reasons of
policies’ defects.



　　In our survey of policy implementation of Nanjing, Guangzhou, Wuhan,
Hefei, Xi’an, and Kunming, it shows some deficiencies of
implementation of civic education policy,such as policy makers did not involve
in teachers and parents,academic courses are out of touch with reality,activity
curriculum can not be fully carried out,the educational philosophy,teaching
methods of teachers are to be improved,and so on. The main reasons include,“insiders input”policy-making model weakens the democratic and scientific
character of the policies; implementation of the policy does not receive due
attention and support; some teachers do not have the knowledge and skills of
civic education; the lack of civic culture that needed by the policy
implementation reduced the consequences of policy.



　　The comparative study shows that,the United States,the Unite
Kingdom,and Japan all emphasize civic education policy formulation and
implementation; the content of their policy outlines a complete system of
modern civic education; civic education policy-making
process involved in the whole society; global education is regarded as an
important part of policy content.



　　To improve elementary and middle schools’ civic education policies of China,policies should raise the national citizen
who is patriotic,obeying the law and of the cardinal virtues; the social
citizen who has the civic consciousness, radical spirits and ability of
participation in public life; the world citizen who has the tolerant
spirit,global consciousness and the multicultural idea,and to strengthen the
consciousness of the citizen to be equal in status and power-and-responsibility’s
equality. Policy system should manifest the core idea of the civic education,the
policy goal should aim at forming citizen characteristics; the content of the
policy should include citizen knowledge,skills and virtues; policies should be
implemented by disciplines,campus culture,networking and other channels;
policies implements should depend upon the teachers troop construction,
management system formulation and the citizen culture cultivation. The
elementary and middle schools’ civic education policies in the social
transformation period of our country should value the orientation of raising
independent personality, raise thee-dimensional citizen. The policy content should
construct the modern civic education system. The policy implementation should
deepen teaching instruction reforms and carry out social practice. The policy safeguard
should emphasize the teachers professional development and civic culture
cultivation.



　　Social reforming is a long-term
pursue goal,the civic education policy’s innovation also by no means can be realized in
short time. Under the environment that lack of citizen culture,the civic
education policy’s reform and the advancement are going to face all
kinds of difficulties and pressure. It needs diligent work,and its success
depends on government’s determination and the will.



 



Key Words:
Social Transformation;Civil Education;Civil Education Policy;Policy Analysis