Education Reforms, Bureaucracy and the Puzzles of Implementation: A Case Study from Bihar
Education Reforms, Bureaucracy and the Puzzles of Implementation: A Case Study from Bihar
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教育改革、官僚主义和实施难题：比哈尔邦案例研究
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发表时间：
2015
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通讯作者：
Vincy Davis
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作者：
Y. Aiyar;Ambrish Dongre;Vincy Davis
印度政府遭遇严重的执行能力危机，已是众所周知的事实。尽管人们普遍认识到这场危机，但对印度政府如何运作的分析工作却非常少，特别是在执行层面。我们对地方官僚的日常实践、他们运作的决策系统以及由此形成的组织文化和规范知之甚少。这种理解对于揭开实施失败的根源以及理解改革努力如何在实地制度化、解释和实施都至关重要。至关重要的是，它可以帮助人们深入了解实施危机持续存在的原因以及在什么条件下可以扭转这种情况。我们的研究试图通过分析比哈尔邦政府 (GoB) 在公立学校采用替代教学工具来提高学习质量的尝试来填补文献中的这一空白，这是 2013-14 学年发起的名为“Mission Gunvatta”的更大改革努力的一部分。教学策略基于本土实验，挑战了基于既定课程的课堂组织和教学的主流假设。重要的是，它的目的是加强地方行政能力，自下而上地支持学校。通过对比哈尔邦教育管理者的详细定性访谈和时间利用研究，本研究指出了组织文化以及一线管理者由此产生的观念和实践在解释、阐明和实施实地改革选择方面所发挥的关键作用。在我们的分析中，服务提供改革的成功和失败不仅取决于适当的政策设计选择、培养创新和领导力，还取决于改革目标与负责实施改革的人员的日常实践之间的相互作用。我们认为，这是当代对公共机构尤其是服务提供改革的理解中缺失的关键环节。
It is a widely accepted truth that the Indian state suffers from a serious crisis of implementation capability. Despite widespread recognition of this crisis, there is remarkably little analytical work on how the Indian state works, particularly at the level of implementation. We know very little about the everyday practices of local bureaucrats, the decision-making systems within which they function and the organizational culture and norms that this fosters. Such an understanding is critical both to unpacking the roots of this implementation failure as well as to understanding how reform efforts are institutionalized, interpreted and implemented on the ground. Crucially, it can offer insights into understanding why the implementation crisis persists and under what conditions this can be reversed. Our research is an attempt to fill this gap in the literature by analyzing an attempt by the Government of Bihar (GoB) to adopt an alternative pedagogy tool in government schools to improve the quality of learning as part of a larger reform effort called the ‘Mission Gunvatta,’ initiated in the 2013-14 academic year. The pedagogical strategy was based on homegrown experiments that challenged mainstream assumptions about classroom organization and teaching based on set curricula. Critically, it was designed to strengthen local administrative capacity to support schools from the bottom up.Through detailed qualitative interviews and time-use studies of Bihar’s education administrators, this study points to the critical role played by organizational culture and resultant perceptions and practices of frontline administrators in interpreting, articulating and implementing reform choices on the ground. In our analysis, the successes and failures of service delivery reforms are as much about appropriate policy design choices, fostering innovation and leadership as it is about the interplay between reform objectives and the every-day practices of those tasked with implementing reforms. This, we argue, is the key missing link in contemporary understanding of public institutions and service delivery reforms in particular.