中國大陸遼寧省中小學教師職稱制度改革之研究

中國大陸2009年啟動中小學職稱制度改革試點，2012年試點範圍開始擴大，2015年《關於深化中小學教師職稱制度改革的指導意見》，中小學教師職稱制度改革全面推開。據此，遼寧省於2016年發布《遼寧省深化中小學教師職稱制度改革實施方案》政策文件，已啟動教師職稱制度改革。本研究旨在探討遼寧省中小學教師職稱制度改革之動因與現況、檢視改革之效應與影響、分析改革之挑戰與思考對策建議等。透過文件分析、實地個別和團體訪談等方法，進行資料蒐集、整理和評析。全文計分為七部分，內容結構安排為：第一章緒論、第二章文獻探討、第三章研究設計與實施、第四章中小學教師職級系統之改革、第五章中小學教師職稱評定制度之改革、第六章中小學教師職位管理制度之改革、第七章結論與建議。本文的研究結論主要包括：第一，在教師職級系統之改革方面：中小學教師職稱系列之統一，小學教師們更是熱烈迴響。正高級教師職稱之設置，暢通了職業發展通道，體現了高級職稱教師的期望與激勵作用。儘管剛開始階段畢竟還是少數能評上正高級，但總地來說，其方向是對的，未來在技術層面上會改善使其更趨完善。另外，城鄉教師資源差距明顯，研究發現，遼寧省已著手進行《2015-2020鄉村教師支持計畫》，且有一些辦法推動中，漸進地縮小城鄉師資資源之差距，但實際上增加鄉村中小學高級教師職稱數額以及提高其工資待遇，是重要的對策，且政府部門應加大對鄉村中小學之教育資源的投入。第二，在教師職稱評定制度之改革方面：完善職稱評定標準之改革，評定標準條件重師德、重能力、重業績和實踐經歷等。在職稱評定構建之案例方面，研究者實地訪談調研遼寧省六所中小學，了解其職稱評定方案的構建情形，其皆參照教育行政部門的法律法規和政策文件內容，結合各校之學校特色及教師專業發展需求，編制職稱評定方案，但方案的施行也有些許爭議或矛盾之處，對此，其也適時檢討修正改進，以符應教師的需求和期待，落實公開、公平、公正的原則。在職稱評定機制的變革措施上，特別強調堅持校內專家評議和業內專家評審結合、落實同行專家評價，朝向多元評價主體方式推開。受訪者普遍認為：新的職稱評定機制開始加強同行評價，並參考學生、家長的意見，這種創新，是一種更加科學的評定機制，讓更多的一線教師都能參與其中，也讓評定機制更加完善。而在職稱評定之監督管理方面，研究發現，推進職稱評審社會參與和專業化、以及推動管辦評分離之改革路徑，這是職稱監督管理工作的兩種重要實踐路徑。第三，在教師職位管理制度之改革方面：首先關於教師職稱結構與職位設置管理情況，研究發現，遼寧省中小學師資配置結構存在的問題為：教師數量供給和需求存在矛盾、鄉村高學歷教師所占比重低、教師隊伍職稱結構有待進一步優化、男女教師的比例嚴重失衡、鄉村中小學普遍缺乏素質課和專業課的教師等。而職位設置是否科學、管理是否到位，對學校教育發展將產生深遠影響，對於目前遼寧省中小學教師職位設置管理之施行狀況，主要措施為：1.完善編制標準，增強教師職位設置的靈活性，這方面受訪者普遍建議應朝向深化定編、定崗、定員等三定之策略進行改革，教師職稱數與職位數相掛鈎；2.保障學校在教師職位設置管理中的自主權。而關於遼寧省中小學教師職為聘用管理之改革情況，首先應健全教師職稱制度的聘任管理程式，再進行職稱評定與職位設置之有效銜接，同時，中小學教師身分定位、聘用契約的法律性質、以及聘用契約糾紛的司法救濟等之確立，是當務之急的重要工作。另外，對於中小學之教師跨校評聘與合理有序的流動，實際上要落實城鄉區域之教師雙向、合理、有序之流動目標，以減少擇校熱現象，這還要有更長的一段路，怎樣建構一套長效之教師流動機制，以促進教師教育資源均衡發展是相當重要的實現路徑。在教師職位聘後管理之改革方面，首先在教師績效考評方面，基於文件分析和訪談結果發現，受訪者普遍贊同基於績效管理的績效考核方式，績效考核標準應具彈性，考量教師個體性和差異性，績效管理實施過程力求嚴謹。受訪者普遍認為，高級教師職稱後之發展管理，應提升激勵機制，加大對教師的表揚和獎勵，教師專業成長達到相當程度給予回饋機制，如增加獎勵性績效工資或是給予榮譽稱號的精神上鼓勵，並重視教師的培訓以提升教師專業發展。

關鍵字

中國大陸；遼寧省；中小學教師；教師職稱制度改革

並列摘要

In 2009, Mainland China had launched a reform of primary and secondary school teachers’ professional title system, and started to expand the extent in 2012. The reform of primary and secondary school teachers’ title system has carried out overall due to “The Instructions to Intensify the Reform of Primary and Secondary School Teachers’ Title System” in 2015. Based on “The Implementation Plan to Intensify the Reform of Primary and Secondary School Teachers” which published in 2016, Liaoning Province has already launched the reform of teachers’ professional title system. The purpose of this study was to investigate the determinants and current situation of the reform of primary and secondary school teachers’ professional title system in Liaoning Province, surveying the effects and influences on reform, and analyzing the challenges and countermeasures. Through the analysis of the document, site investigation individual and group interviews to conduct data collection, collation, and assessment. This paper is divided into seven main sections. The structure of the paper is as follows：Chapter1.Introduction,Chapter2.Literature Review,Chapter3.Research Design and Implementation,Chapter4.The Reform of Primary and Secondary School Teachers’ Professional Title System,Chapter5.The Reform of Primary and Secondary School Teachers’ Job Evaluation System,Chapter6.The Reform of Primary and Secondary School Teachers’ Post Management,Chapter7.Conclusion and Suggestion. The conclusions in this paper are as follows: First, in terms of the reform of teachers’ professional rank system, the unification of primary and secondary school teachers’ professional title system stimulated the working enthusiasm of teachers, especially in elementary school teachers. The establishment of the title of senior teachers unblocked the passage through professional development and incarnated the expectation and inspiration of senior teachers’ professional title. In the beginning stage, only the minority can go to senior level However, the direction is correct in general. In the future, it will be more complete due to the improvement of technical aspect. Furthermore, there was a significant gap between urban and rural teachers’ resources. According to the research, Liaoning Province has started the “2015-2020 Rural Teachers Support Program”, and there are some ways to promote it. The proper reform gradually narrowed down teachers’ resources disparity between urban and rural. Yet, in fact, it is an important measure to increase the number of senior teachers in rural primary and secondary school and their wages. Moreover, the government should increase the input of educational resources in rural primary and secondary school. Second, in terms of the reform of the teacher’s title assessment system, to complete the evaluation standard, the assessment focused on teacher’s morality, competence, and performance. In the construction of Job evaluation project, the six schools which researchers have conducted field research all referenced the education administrative department’s policy and regulations, and also combined each school’s feature and demand of teacher’s professional development; however, there are still some existing contradictions and controversies about the implement of this project. About this, the program should be reviewed and revised in a timely manner to meet the needs and expectations of teachers and to conform the principle of openness, fairness and justice. In terms of the innovation measures of the title evaluation mechanism, put strong emphasis on insisting parallel assessment conducted by both experts in schools and in the industry to carry out peer evaluation, and to go towards the development of diverse subject evaluation method. The interviewees generally considered that it is an innovation to strengthen peer evaluation and to take reference of students’ and parents’ opinion in new evaluation system. It is a more democratic and scientific evaluation system; it allows more frontline teachers to get involved and it makes the system more complete. Regarding the supervision and management of the title evaluation, research showed that the two major methods to accomplish the target are to socialize and specialize the professional title assessment and to roll forward the reform of the separation of Management, Transaction, and Evaluation. Third, in terms of the teacher’s post-setting management, first of all, regarding to the condition of the management of teacher’s professional title structure and post-setting, research found that the existing problems of the allocation of schools in Liaoning province are as follows: There is a contradiction between the supply and demand of the quantity of teachers. The proportion of high educated teachers in rural areas is much lower. The structure of professional title needs to be further optimized. The proportion of male and female teachers is seriously imbalanced. Rural schools generally lack teachers for liberal education and professional courses, etc. Furthermore, whether the post-setting is scientific or whether the management is in place will have a profound effect on the development of educational institutions themselves. The current practice of teachers’ post-setting management in Liaoning province include two main measures: Firstly, complement the preparation standard and enhance the flexibility of teachers' post-setting. Interviewees generally suggested that the three-fixed strategy ("fixed personnel, fix position, fixed arrangement") should be deepened, and the number of teachers’ professional titles should be linked to the number of posts. Secondly, guarantee the autonomy of schools in the post setting management. Regarding to the condition of the reforming of teachers’ title post-setting in Liaoning Province, the first step is to execute actual management of Post-Employment to complete the Teachers’ title system（TTS）. After then, conduct the effective connection of Title Assessment and Post-setting. At the same time, the position of teachers’ identity, the establishment of the legal nature of contracts, and the clarification of employment contract dispute’s judicial relief are the pressing matters of the moment. On the other side, in terms of the evaluation and rational flow of teachers’ cross-school engagement, in fact, to carry out the two-way, rational and orderly flow of teachers in urban and rural areas in order to reduce the fad of school choice, the process still requires a long period of time. The top priority is to find out how to construct a long-term effective teacher flow mechanism to balance education resources. About the reform of management after teachers’ post-employment, first, regarding to Teachers’ Performance Evaluation, based on text analysis and interviews, the result showed that the interviewees generally agreed with the performance management that based on the performance appraisal method. The performance appraisal standard should flexibly consider of teacher’s individuality and differences, and be rigorous in the implementation process. It is generally believed that in terms of the development and management of senior teachers, we should enhance the promoting system and increase recognition and rewards. Give feedback when a teacher’s professional growth reaches a considerable degree; for instance, increase incentive performance related salary or award honorary title as a moral encouragement as well as attach immense importance to teachers' training in order to enhance teachers' professional development.