非洲教师教育一体化发展战略面临的挑战
虽然非洲教师教育一体化发展战略的制定和实施到目前为止取得了一些成效,但是在政治经济发展水平落后、信息通信技术尚不发达、人才流失严重等问题突出的非洲大陆,教师教育一体化战略的发展面临着很多挑战,这些挑战主要体现在教师教育发展资金短缺、利益相关者间组织协调困难、政策规划本土化程度不高、评估和监管体系缺乏四个方面。
(一)教师教育发展资金短缺
资金短缺是非洲教师教育一体化发展战略面临的重大挑战之一。由于非洲各国经济发展普遍落后,国家财政在教师教育领域的投资严重不足,这就导致战略规划的实施严重依赖于外部利益相关者的资金援助,但是往往这些援助国的资金又极其不稳定,最终导致战略的实施效果大打折扣。以《撒哈拉以南非洲师资培训计划》为例,在2006—2007年,该计划的正规经费支持是2225946美元,而到了2008—2009年,正规经费预算就减少到了1831300美元,这些经费再分配到各个机构就微乎其微,这就使得各成员国的师资培训计划难以为继。
教育资金短缺也导致配套的基础设施短缺。例如,《撒哈拉以南非洲教师教育项目》主要是通过开发和利用开放教育资源,以网络为载体,为不同国家的教师提供优质的教育资源,但是由于成员国电力供应不足、网络覆盖范围窄、计算机普及率低等原因,这些战略措施都难以进一步实行,计划的预期效果难以达成。
(二)利益相关者间组织协调困难
利益相关者的组织协调困难主要体现在以下两方面。
一是非洲不同国家和地区间教师教育体制协调困难。在殖民历史的影响下,非洲大陆上既有英语、法语国家,也有葡萄牙语和西班牙语国家,这些国家在宗主国的影响下,早已形成特定的教师教育体系。如何在不同教育体系下制定出切实可行的教师教育发展计划,将不同教育体系下的教师教育课程、学历学位资格认证体系协调起来,建立协调一致的师资培训体系等等都是非洲教师教育一体化战略发展道路上面临的挑战。
二是各职能机构协调力度不够,办事效率低。以《撒哈拉以南非洲师资培训计划》为例,该计划在实施方面,常设机构职能划分不清导致部分机构办事效率低,影响了项目的执行。例如,布基纳法索、赞比亚和乍得,既没有预算外资金支持,也没有负责的相关工作人员,并且有约25%的国家利益相关者表示,他们没有得到计划机构的任何援助或支持。[74]再比如,《撒哈拉以南非洲教师教育项目》在实施过程中,管理与决策委员会负责日常的管理和协调工作,但是对不同国家的各实施机构约束力度不够,导致不同机构间各自为政现象严重。[75]
(三)政策规划本土化程度不高
由于教师教育战略规划的实施经费严重依赖国际援助,再加上受到全球化的影响,非洲各国在接受国际组织、发达国家等利益相关者对非洲教师教育一体化发展提出的政策规划的同时,也失去了自主选择的能力,导致许多战略、规划的制定、实施不得不顺应援助方的意愿;而援助方的理念和方式又经常与非洲本土状况不一致,因此导致许多政策、规划的实施脱离实际,难以达到预期效果。例如,《撒哈拉以南非洲师资培训计划》倡导各成员国制定“适切的教师教育政策”,但是其开发出的《教师政策开发工具包》脱离各成员国的实际情况,难以在大范围内推广。如何从非洲本土出发,制定出符合非洲各国国情的教师教育一体化战略规划是一个亟待解决的难题。
(四)评估和监管体系缺乏
非洲教师教育一体化发展战略的制定和实施主体在战略规划的制定和实施过程中缺乏系统的评估和监管体系,这就导致项目实施过程中出现的相关的问题和需要不能得到及时反馈和提出切实可行的解决方案;很多战略规划在到达规定的结束期限后,并没有进行必要的评估和反思,最终不了了之。
【注释】
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[2]先后担任尼日利亚伊巴丹大学教育学教授、世界教师职业组织联合会(WCOTP)项目协调人、联合国教科文组织秘书处副主任、联合国教科文组织非洲地区教育局主任,2014年被聘为伊巴丹大学荣誉教授。
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