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——读《关于加强新时期中小学图书馆建设与应用工作的意见》
——Read the Opinion on Strengthening the Construction and Application of Primary and Secondary School Libraries in the New Era
2015-06-01 　来源：教育部
June 1, 2015 Source: Ministry of Education

  • 近日，教育部、文化部、国家新闻出版广电总局联合发布了《关于加强新时期中小学图书馆建设与应用工作的意见》（以下简称“意见”），从总体要求、重点任务、保障措施等方面对中小学图书馆的建设提出了指导意见，这是近年来中小学图书馆事业发展中的一件大事，值得关注。
  • Recently, the Ministry of Education, the Ministry of Culture, and the State Administration of Press, Publication, Radio, Film and Television jointly issued the “Opinions on Strengthening the Construction and Application of Primary and Secondary School Libraries in the New Era” (hereinafter referred to as the “Opinions”), which provides guidance on the construction of primary and secondary school libraries from the aspects of overall requirements, key tasks, and guarantee measures. This is a major event in the development of primary and secondary school libraries in recent years and deserves attention.
  • 一、意义价值
  • 1、 Meaning and Value
  • 国务院总理李克强在今年的《政府工作报告》中指出，文化是民族的精神命脉和创造源泉。要践行社会主义核心价值观，弘扬中华优秀传统文化。要让人民群众享有更多文化发展成果，倡导全民阅读，建设书香社会。这是继2014年政府工作报告中提出“倡导全民阅读”后，第二次将全民阅读写入政府工作报告，并在报告中首次提出建设书香社会。
  • Premier Li Keqiang pointed out in this year’s Government Work Report that culture is the spiritual lifeline and creative source of a nation. To practice the socialist core values and promote the excellent traditional Chinese culture. To enable the people to enjoy more cultural development achievements, advocate for universal reading, and build a bookish society. This is the second time that “promoting reading for all” has been included in the government work report since the 2014 report, and for the first time, the construction of a bookish society has been proposed in the report.
  • 培育书香社会、推动国民阅读，应从培养和保障儿童的阅读做起，如果能够培养我国未成年人良好的阅读习惯并保障和满足其阅读需求，随着他们的成长，自然而然地会形成全民阅读的氛围，从而达成书香社会的建设。
  • To cultivate a bookish society and promote national reading, we should start with cultivating and ensuring children’s reading habits. If we can cultivate good reading habits among minors in China and ensure and meet their reading needs, as they grow up, it will naturally form an atmosphere of nationwide reading, thus achieving the construction of a bookish society.
  • 早在1980年，联合国教科文组织发布的《中小学图书馆宣言》就指出：“中小学图书馆是保证学校对青少年和儿童进行卓有成效的教育的一项必不可少的事业”，“一所出色的图书馆是保证学校取得教育成就的基本条件”。国际图联在2002年发布的《中小学图书馆指南》也提到，中小学图书馆的使命就在于向学生提供信息及思想，这些信息和思想是使他们在当今信息和知识社会中表现良好的基础。中小学图书馆通过培养学生的终身学习技能及想象能力，使他们成为有责任感的公民。前苏联著名教育实践家和教育理论家苏霍姆林斯基也说过：“一所学校可以什么也没有，但只要有图书馆，就可以称之为学校”。可见，中小学图书馆的地位和作用是有共识的。
  • As early as 1980, the UNESCO Declaration on Primary and Secondary School Libraries stated that “primary and secondary school libraries are an essential undertaking to ensure effective education for young people and children in schools” and “an excellent library is a fundamental condition for ensuring educational achievement in schools”. The International Federation of Library Associations (IFLA) released the “Guidelines for Primary and Secondary School Libraries” in 2002, which also mentioned that the mission of primary and secondary school libraries is to provide students with information and ideas, which are the foundation for them to perform well in today’s information and knowledge society. Primary and secondary school libraries cultivate students’ lifelong learning skills and imagination, enabling them to become responsible citizens. Sukhomlinsky, a famous education practitioner and theorist in the former Soviet Union, also said: “A school may have nothing, but as long as it has a library, it can be called a school. It can be seen that there is a consensus on the status and role of primary and secondary school libraries.
  • 这次“意见”从“全面贯彻教育方针、实施素质教育，提升学校内涵与品质，形成书香校园，带动全民阅读，助推学习型社会和书香社会建设”的高度对中小学图书馆工作进行指导，强调中小学图书馆应该对整个社会文化建设发挥作用，比以往的相关文件更加立意深远，深刻揭示了中小学图书馆建设和工作的社会责任，指明了中小学图书馆事业的发展方向，这是“意见”的意义和价值所在。
  • This “opinion” provides guidance on the work of primary and secondary school libraries from the perspective of “fully implementing educational policies, implementing quality education, enhancing the connotation and quality of schools, forming a bookish campus, promoting national reading, and promoting the construction of a learning society and a bookish society”. It emphasizes that primary and secondary school libraries should play a role in the overall social and cultural construction, which is more profound than previous relevant documents. It deeply reveals the social responsibility of primary and secondary school library construction and work, and points out the development direction of the primary and secondary school library industry. This is the significance and value of the “opinion”.
  • 二、对“意见”内容的认识
  • 2、 Understanding of the Content of ‘Opinions’
  • （一）关于总体要求
  • （1） Regarding the overall requirements
  • 在总体要求上，“意见”肯定了中小学图书馆的地位和作用，中小学图书馆是服务教育教学和教育科学研究的重要办学条件，是保障未成年人阅读，提高他们自主学习能力和终身学习能力的重要途径，明确指出中小学图书馆作为国家图书馆系统的重要组成，对于服务学习型社会和书香社会建设具有深远意义。目前，虽然国家先后实施一系列基础教育重大建设工程，全面提高了中小学图书馆的保障水平，但是仍存在许多问题，包括认识不到位、发展不平衡、与教育教学融合不够、信息化基础薄弱、缺乏专业人才、管理服务水平不高等等，为解决这些问题，“意见”提出了了明确的工作目标，指明了中小学图书馆建设与应用工作的前进方向。
  • In terms of overall requirements, the “Opinions” affirm the status and role of primary and secondary school libraries. Primary and secondary school libraries are important conditions for serving education, teaching, and educational scientific research, and are important ways to ensure minors’ reading, improve their self-learning ability, and lifelong learning ability. It is clearly pointed out that primary and secondary school libraries, as an important component of the national library system, have profound significance for serving the construction of a learning society and a bookish society. At present, although the country has implemented a series of major basic education construction projects, comprehensively improving the guarantee level of primary and secondary school libraries, there are still many problems, including inadequate understanding, uneven development, insufficient integration with education and teaching, weak information technology foundation, lack of professional talents, and low management and service level. To solve these problems, the “Opinions” have put forward clear work goals and pointed out the direction for the construction and application of primary and secondary school libraries.
  • 首先，我国的农村中小学图书馆建设是事业发展中最为薄弱的环节之一，特别是一些经济不发达的偏远地区中小学，几乎谈不上图书馆建设。尽管早在2003年，教育部就颁布了《中小学图书馆（室）规程（修订）》，2008年还制定了《农村普通中小学图书室建设标准（试行）》，但目前贫困地区的中小学与规程标准相比仍有非常大的差距。“意见”在工作目标中明确，到2018年，在全面改善贫困地区和中西部农村校舍条件的过程中，有条件的地区要补充新建图书馆和改善不达标图书馆，不具备条件的中小学也需建图书柜或图书角，到2020年，绝大部分中小学要建有图书馆。
  • Firstly, the construction of rural primary and secondary school libraries in China is one of the weakest links in the development of the cause, especially in some economically underdeveloped remote areas where library construction is almost non-existent. Although the Ministry of Education issued the “Revised Regulations for Primary and Secondary School Libraries” as early as 2003 and also formulated the “Construction Standards for Rural Ordinary Primary and Secondary School Libraries (Trial)” in 2008, there is still a significant gap between primary and secondary schools in poverty-stricken areas and the regulations and standards. The “Opinions” clearly state in the work objectives that by 2018, in the process of comprehensively improving the conditions of school buildings in poverty-stricken areas and rural areas in central and western China, areas with conditions should supplement and build new libraries and improve libraries that do not meet the standards. Primary and secondary schools that do not have conditions should also build bookshelves or book corners. By 2020, the vast majority of primary and secondary schools should have libraries.
  • 其次，在2001年6月8日教育部印发的《基础教育课程改革纲要（试行）》中就明确规定图书馆是重要的课程资源，是为实施课程改革提供课程资源保障的地方。不过，总的来看，这方面还没有的到应有的重视，例如，从中共中央、国务院印发《中国教育改革和发展纲要》开始，相关部门就先后出台了七部推进素质教育进程的政策文件，但其中仅有四个简要提到学校图书馆的建设。“意见”明确提出并强调中小学图书馆要在素质教育和课程改革中与教育教学进行全面深度融合，成为中小学的一个高地（信息资源高地）、三个中心（智慧中心、成长中心、活动中心），目标具体，也有高度，可以切实将中小学图书馆建设与应用工作提升到新的水平。
  • Secondly, in the “Outline of Basic Education Curriculum Reform (Trial)” issued by the Ministry of Education on June 8, 2001, it was clearly stipulated that libraries are important curriculum resources and provide curriculum resource guarantees for the implementation of curriculum reform. However, overall, this aspect has not received the attention it deserves. For example, since the Central Committee of the Communist Party of China and the State Council issued the “Outline of China’s Education Reform and Development”, relevant departments have successively issued seven policy documents to promote the process of quality education, but only four of them briefly mentioned the construction of school libraries. The Opinion clearly proposes and emphasizes that primary and secondary school libraries should be comprehensively and deeply integrated with education and teaching in quality education and curriculum reform, becoming a highland (information resource highland) and three centers (wisdom center, growth center, and activity center) for primary and secondary schools. The goal is specific and has a high degree, which can effectively elevate the construction and application of primary and secondary school libraries to a new level.
  • （二）关于重点任务
  • （2） Regarding Key Tasks
  • “意见”提出了六项重点任务，其中，“推进基础条件建设”是图书馆建设与应用工作的根本；“确保馆藏资源质量”与“规范馆藏采购机制”是图书馆建设与应用工作开展的保证；“不断提高信息化水平”是图书馆建设与应用工作前进的动力；“充分发挥育人作用”和“带动书香社会建设”是图书馆建设与应用工作的实际作用。
  • The “Opinions” put forward six key tasks, among which “promoting the construction of basic conditions” is the fundamental aspect of library construction and application work; Ensuring the quality of library resources and standardizing the collection procurement mechanism are the guarantees for the construction and application of libraries; Continuously improving the level of informatization is the driving force for the advancement of library construction and application work; The practical role of library construction and application work is to fully play the role of educating people and promote the construction of a bookish society.
  • 第一，对中小学图书馆的功能定位、馆舍面积、配套设施、馆藏保障、资源利用、队伍建设、管理应用等方面都应做出合理安排。同时，通过示范性中小学图书馆引领、辐射并带动其他中小学图书馆共同成长，发挥榜样的力量；第二，通过将教育部指导编制的中小学图书馆馆藏推荐目录与学校实际相结合，制定符合校情的馆藏补充与剔旧原则，最大限度地保证馆藏的质量；第三，在采购的环节吸纳广泛意见，逐步形成师生、家长和专家学者多方参与的采购机制，保证采购图书的多样性、科学性和与时俱进性，也可以防止采购环节中易发生的腐败和渎职等问题；第四，充分发挥现代信息技术的作用，用信息化和网络化加快图书馆的建设与发展，突破图书馆建设与发展中存在的资金不足和发展不均衡的瓶颈；第五，规定中小学图书馆的周开放时长和开放形式，将中小学图书馆由“花瓶”变为可以真正与学科教学有效结合、深度融合的教学资源；第六，通过丰富多彩的阅读活动和灵活多变的阅读形式将阅读深入每个学生的心中，形成良好的阅读氛围，带动书香社会的建设。六项任务，件件具体，具有很强的现实意义和可操作性。
  • Firstly, reasonable arrangements should be made for the functional positioning, building area, supporting facilities, collection guarantee, resource utilization, team building, management and application of primary and secondary school libraries. At the same time, by leading, radiating, and driving other primary and secondary school libraries to grow together through exemplary primary and secondary school libraries, we can unleash the power of role models; Secondly, by combining the recommended catalog of primary and secondary school library collections compiled under the guidance of the Ministry of Education with the actual situation of the school, principles for supplementing and discarding collections that are in line with the school’s situation can be formulated to maximize the quality of the collections; Thirdly, in the procurement process, we should absorb a wide range of opinions and gradually form a procurement mechanism involving teachers, students, parents, experts, and scholars, ensuring the diversity, scientificity, and keeping up with the times of book procurement. This can also prevent corruption and dereliction of duty that are prone to occur in the procurement process; Fourthly, fully leverage the role of modern information technology, accelerate the construction and development of libraries through informatization and networking, and break through the bottleneck of insufficient funds and uneven development in library construction and development; Fifth, establish the weekly opening hours and forms of primary and secondary school libraries, transforming them from “vases” into teaching resources that can truly and deeply integrate with subject teaching; Sixth, through rich and diverse reading activities and flexible forms of reading, reading will penetrate into the hearts of every student, creating a good reading atmosphere and driving the construction of a bookish society. The six tasks are specific and have strong practical significance and operability.
  • （三）关于保障措施
  • （3） Regarding safeguard measures
  • “意见”提出了从经费、人才队伍、督导评估和组织领导四个方面来保障中小学图书馆建设与应用工作的正常开展。
  • The Opinion proposes to ensure the normal development of the construction and application of primary and secondary school libraries from four aspects: funding, talent team, supervision and evaluation, and organizational leadership.
  • “意见”首先关注到了资金和人才的保障，这两项恰恰是图书馆面临的最大困难，所以，“意见”明确地要求各级教育主管行政部门对中小学图书馆的相关经费安排预算，建立专业的图书馆管理人员队伍，并从编制、待遇、职称评聘和晋升上给予优惠，吸引并留住人才。
  • The “Opinions” first focus on the guarantee of funds and talents, which are precisely the biggest difficulties faced by libraries. Therefore, the “Opinions” clearly require education administrative departments at all levels to allocate budgets for relevant funds of primary and secondary school libraries, establish a professional team of library management personnel, and provide preferential treatment in terms of staffing, benefits, professional title evaluation and promotion, in order to attract and retain talents.
  • “意见”还对中小学图书馆的教育督导部门和上级文化与新闻出版管理部门提出了要求，要求这些部门不仅要对中小学图书馆的建设与应用进行评估并提高其在学校管理考核中的比重，还要将中小学图书馆建设与应用纳入事业发展总体规划，并结合实际制定出推进中小学图书馆建设与应用工作的具体方案，发挥各级主管部门在中小学图书馆的建设、配备、管理和应用的各个环节之中的统筹协调和分类指导作用。这样，就从制度和管理上保障了中小学图书馆工作的健康发展。
  • The “Opinions” also put forward requirements for the education supervision departments and higher-level cultural and news publishing management departments of primary and secondary school libraries, requiring these departments not only to evaluate the construction and application of primary and secondary school libraries and increase their proportion in school management assessments, but also to incorporate the construction and application of primary and secondary school libraries into the overall development plan of the cause, and formulate specific plans to promote the construction and application of primary and secondary school libraries based on actual situations, and to give full play to the overall coordination and classification guidance role of various levels of competent departments in the construction, equipment, management, and application of primary and secondary school libraries. In this way, the healthy development of primary and secondary school library work is guaranteed from the perspectives of system and management.
  • 三、落实“意见”的几点看法
  • 3、 Several opinions on implementing the ‘opinions’
  • （一）提高认识，加大重视
  • （1） Raise awareness and increase attention
  • 各地方的教育主管行政部门和中小学都应该认真学习“意见”，从社会发展的高度认识图书馆的功能和定位，重视图书馆的建设与应用，解决本区域或本校图书馆存在的问题与不足。同时教育主管行政部门应对所辖的中小学的图书馆的建设与应用出台或制定支持其建设和发展的政策法规，改变以往中小学图书馆“边缘化”的地位，将其真正地变为学校的信息资源高地和师生智慧中心、成长中心、活动中心。
  • Education administrative departments and primary and secondary schools in various regions should seriously study the “opinions”, understand the functions and positioning of libraries from the perspective of social development, attach importance to the construction and application of libraries, and solve the problems and deficiencies of libraries in their respective regions or schools. At the same time, the education supervisory administrative department should introduce or formulate policies and regulations to support the construction and development of primary and secondary school libraries under its jurisdiction, changing the previous “marginalized” status of primary and secondary school libraries and truly turning them into the information resource highland, teacher-student intelligence center, growth center, and activity center of the school.
  • （二）分解任务，落实责任
  • （2） Decompose tasks and implement responsibilities
  • 学习“意见”，领会“意见”的精神，各级教育主管行政部门和中小学校应认真对照“意见”的总体要求，分析自身的问题和不足，根据自身实际情况，制定出本地区、本单位在不同时期的阶段目标、任务和实施方案，并结合实际将任务进行分解，需要制定出符合本地特色的详尽可行的实施细则，任务的实施一定要落实到人，在任务实施过程中如果发生严重问题或长期滞后，要采用问责制，以便高效地推进任务的完成，最终实现“意见”中设定的工作目标。
  • To study the “opinions” and understand the spirit of the “opinions”, education administrative departments at all levels and primary and secondary schools should carefully compare the overall requirements of the “opinions”, analyze their own problems and shortcomings, formulate stage goals, tasks and implementation plans for their own regions and units in different periods based on their actual situations, and decompose the tasks according to the actual situation. It is necessary to develop detailed and feasible implementation rules that are in line with local characteristics. The implementation of tasks must be implemented by individuals. If serious problems or long-term delays occur during the implementation of tasks, an accountability system should be adopted to efficiently promote the completion of tasks and ultimately achieve the work goals set in the “opinions”.
  • （三）课程保障，培养阅读
  • （3） Curriculum guarantee, cultivating reading skills
  • 各地方教育主管行政部门和中小学校应重视图书馆在学校课程改革、教学育人、培养阅读习惯方面的作用，将课外兴趣读物的泛读课程以及阅读素养提升课程列为重要的常设课程，课程可以由专职教师和图书馆专业人员联合共建，形式灵活多样，可采用传统阅读教学、真人图书馆、家长分享阅读、专家推荐读物等方式，充分激发中小学生的阅读兴趣，提高中小学生的阅读广泛度，培养终身阅读的习惯。
  • Local education administrative departments and primary and secondary schools should attach importance to the role of libraries in school curriculum reform, teaching and education, and cultivating reading habits. They should include extracurricular interest reading courses and reading literacy improvement courses as important permanent courses. The courses can be jointly built by professional teachers and library professionals, with flexible and diverse forms. Traditional reading teaching, live libraries, parent sharing reading, expert recommended reading materials, and other methods can be used to fully stimulate the reading interest of primary and secondary school students, improve their reading breadth, and cultivate lifelong reading habits.
  • （四）监督考核，奖惩并行
  • （4） Supervision and assessment, parallel rewards and punishments
  • 在考核评价方面，要采用定期和不定期的动态考核评价方式，杜绝中小学图书馆建设应用考评中存在的敷衍了事、临阵磨枪等问题，不能让考核评价成为一种形式，成为学校的一种负担。要充分发挥考核评价的监督作用，对于在考评中真正优秀的中小学图书馆要敢于奖励并作为模范案例进行推广，对于考评结果不佳的中小学图书馆也要敢于批评并督导完善。（北京大学信息管理系  李广建）
  • In terms of assessment and evaluation, regular and irregular dynamic assessment and evaluation methods should be adopted to eliminate the problems of perfunctory and hasty evaluation in the construction and application evaluation of primary and secondary school libraries. Assessment and evaluation should not become a form or a burden on schools. We should fully leverage the supervisory role of assessment and evaluation. For truly outstanding primary and secondary school libraries in the evaluation, we should dare to reward and promote them as exemplary cases. For primary and secondary school libraries with poor evaluation results, we should also dare to criticize and supervise their improvement. (Li Guangjian, Department of Information Management, Peking University)