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建聯動管理機制 用制度保駕護航

廣州番禺精準施策辦好小區配套園

發布時間:2019-05-26 作者:本報記者 劉盾 來源:中國教育報

■聚焦小區配套園治理

現在,廣州市番禺區大龍街金海岸幼兒園園長盧婷處于幸福的煩惱中。該園近日新生預報名場面火爆,200多名金海岸花園小區業主的孩子報名,而該園只能招收100名。

這與6年前招生困難的場景簡直是冰火兩重天。2003年至2013年,該園被小區開發商租給一家民辦學前教育機構。由于辦園質量不高,小區內很多業主把孩子送往數公里外的其他幼兒園。

金海岸幼兒園學位從供過于求到供不應求的變化背后,是2008年以來,番禺以問題為導向,按先易后難、循序漸進的方式,大力推進城鎮小區配套園治理工作。

組合拳破解“應配不配、建而不交”難題

金海岸幼兒園離業主劉育青家不到300米,2009年,他舍近求遠,把孩子送到兩公里外的石崗東幼兒園,“我家鄰居當時把孩子送進了小區配套園,她發現那里老師流動性大,持證率不高,小學化傾向嚴重”。

當年,小區里跟劉育青家寶貝玩得比較好的七八個孩子,只有一個入讀金海岸幼兒園。

部分小區配套園辦園質量不高,難以滿足人民群眾幼有優育的期望,怎么辦?

“我區直面難題,率先行動,堅持政府主導和公益普惠的鮮明導向,構建黨委統一領導、有關部門各負其責的聯動管理機制,著力破解應配不配、配而不建、建而不交等難題,勇擔教育職責。”番禺區政協副主席、區教育局局長馮潤勝介紹說,早在2008年,該區就開始深入調研,全面分析、梳理小區配套園存在的問題,理順機制,“越早行動越主動,所面臨的歷史遺留問題就越少”。

為增強小區配套園專項整治工作的權威性和力度,番禺區委、區政府將學前教育發展納入重要議事日程,將其列為每月報告督辦內容。2009年,該區成立小區配套教育設施建設工作領導小組,區領導兼任組長。教育、規劃、國土、建設、消防、安監等部門群策群力,研究制定新建小區配套園移交標準和辦法,填補原來法規相對不明確、步驟流程不完善等漏洞。

“我們用制度為小區配套園專項整治工作保駕護航,樓盤建到哪里,小區配套園等教育設施就要配套到哪里。”番禺區教育局調研員李珈介紹說,2011年起,該區為小區配套園劃定了建設標準線,規劃、建設部門在辦理單體平面修建性詳細規劃、資質年檢時,均要求開發商必須提前取得區教育局對教育設施配套的意見;新建小區配套園要與小區規劃、設計、建設、驗收、交付使用實現五同步;國土房管部門不允許房地產開發小區教育設施確權到開發商名下。對存在配套園緩建、縮建、停建、不建等問題的,在整改到位前,相關部門不予辦理竣工和確權登記。

這打牢了番禺新建小區配套園應建必建、建而必交的法規基礎。番禺還相繼制定管理辦法,自2018年起,無償移交政府的小區配套園,全部辦成公辦性質幼兒園。

在制度的規范下,一大批新建小區開發商不但無償移交幼兒園,還配送“嫁妝”。萬科地產移交紅郡小區幼兒園、捐助300萬元;長隆集團移交瓏翠小區幼兒園、捐助500萬元……

自2011年以來,番禺52所新建小區配套園均已簽訂建設移交協議,除13所正在建設外,39所產權已移歸政府。

一園一案啃下存量園治理“硬骨頭”

如何處理相關法規出臺之前建成的小區配套園?這是難啃的“硬骨頭”。2009年以來,番禺在治理新建小區配套園取得突破的基礎上,迎難而上,深入調研、全面摸底排查小區配套園歷史遺留問題,分別列出清單、建立臺賬,并按照一事一議、一園一案原則,依法依規妥善處理歷史遺留問題,打好攻堅戰。

“對于存量園治理工作,我們要根據經濟發展實力等現實條件,精準施策,不能硬來,不然會引發諸多問題。要深入研讀當時的法規政策,從中梳理出針對性的處理意見和操作指引,在法律法規框架內,找出各方都能接受的解決方案。”在馮潤勝看來,一刀切地采取政府出資回購或退還土地出讓金等方式,會給當地財政帶來較大壓力。應尊重當時的法規要求等歷史現實,從中尋找破局之道。

功夫不負有心人。番禺區教育局大量翻閱歷史資料,從中找出了《廣州市成片開發住宅小區教育設施配套建設管理辦法》(簡稱《辦法》)。這份由廣州市政府在1996年印發的文件明確規定,小區配套教育設施竣工后,其校舍產權及使用權應無償交給市或區教育行政部門。

“治理存量園不能想著畢其功于一役,而要先易后難,一步步推進。《辦法》生效日期是1996年7月10日,我們就先治理之后建成的幼兒園。”李珈帶隊調研時發現,存量園的產權歸屬情況不同,開發商態度、訴求不一,因此教育局在總體方向上一視同仁,確定了必須移交產權和辦成普惠園這兩條談判底線,但具體實施路徑是具體問題具體分析,一個個去談。

番禺區教育局曉之以理、動之以情,廣泛宣傳發動、充分解讀政策,讓開發商明確移交的豐厚收益、不移交的法律風險,使當地形成了擁護改革的良好共識,部分開發商將存量園產權無償移交。

對于不愿無償移交產權的開發商,番禺區教育局在科學測算開發商辦園成本的基礎上,給出了讓其再辦15年普惠園的補償辦法。番禺區教育局職成幼民辦教育科科長曾偉杰認為,這種探索一舉多得、細水慢流,“不但能讓開發商基本收回成本,有利于政策平穩推進;同時也能避免大量存量園短時間內集中移交,政府難以抽調足夠的資源進行補償和承接”。

這些依法依規、積極穩妥的舉措取得了良好效果。目前,番禺2011年前動工的存量園,已有10所被教育局收回,分別辦成3所公辦園、7所普惠性民辦園。

齊發力促進辦園質量“水漲船高”

開園不到半年,萬科紅郡幼兒園就達到區一級園水平;第二年,該園榮獲番禺區好園所稱號;第三年,該園順利通過廣州市一級幼兒園評估驗收。該園辦園水平之所以一年一個臺階快速躍升,其重要原因是坐上了番禺為小區配套園打造的“發展快車”。

作為廣東省乃至全國學前教育改革發展實驗區,近年來,該區打出辦園體制改革、強師工程、科研引領等組合拳,推動小區配套園朝著教師有特長、課程有品位、環境有特色、園所有品牌的目標邁進,努力讓更多孩子享有公平而有質量的學前教育。

為破解小區配套園發展不均衡不充分問題,番禺引入廣州市教研院等優質教育資源,大力推進辦園體制改革,共同探索出了廣州實驗教育集團實驗園等新型辦園模式。該區還發揮區屬機關幼兒園等優質園品牌優勢,通過名園辦分園、強園扶弱園等形式,借助母體卓越的管理、師資、課程等資源,推進小區配套園跨越式發展。

錢少花已在金海岸幼兒園做了10年保育員。該園移交教育局之前,她月收入僅有1000多元。那時,很多教師、保育員僅有中專學歷,持證率不高,流動性大,“與我搭檔的4個老師,3年就換了3個”。移交之后,錢少花努力考取了資格證、大學學歷,工資收入比原來漲了近5倍。這激勵她更用心用情地關愛陪伴孩子。

自2015年起,番禺運用學費返還、獎勵、補助等經濟杠桿,提升小區配套園教師學歷合格率與持證率。同時,該區通過加大財政投入、發放從教津貼等形式,提升小區配套園教師收入。

如何讓小區配套園各美其美,為孩子提供多元發展通道?番禺的做法是打造文化特色園。該區引導小區配套園根據自身定位和情況,研究傳承本土嶺南文化等區域特色,通過課題引領、開辦大師工作室、研發園本教材等做法,共同促進小區配套園百花齊放。

《中國教育報》2019年05月26日第1版 

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