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小学教师培训的政策是一种制度安排下的培训过程,这会影响教师的整体发展。在中国长期以来,教师培训,尤其是小学教师培训或多或少的缺乏和滞后阻碍了教学的发展。缺乏配套政策,和有效性的策略,这导致中国基础教育的落后,形成了一种低水平的小学教师的专业发展和教学能力的失调。因此,小学教师教育体系的研究具有十分重要的实际意义。公共政策研究的基本原则的理论基础是研究教师培训的政策的实施,以及研究的过程和影响教师培训政策的实施，这有助于深化对公共政策执行的理论的理解。因此,在这种教育体制的病垢下，中国基础教育应该以改革为背景,本论文分析了小学教师培训中各种存在的问题和原因，为小学教师培训政策的实施提出改进的措施。 ABSTRACT The primary-school teachers’ training policy is an institutional arrangement that influences the integral development of teachers. For long, teacher training in China, especially primary-school teachers training more or less has been hindered by the lack and lag of policies, shortage of supporting policies, and poor effectiveness of policies, which lead to the backwardness of Chinese basic education, low degree of primary-school teachers’ professional development, and the maladjustment of teaching faculties to the development of the education. Therefore, the study of education system of primary-school teachers is of great practical importance. The basic principle of the public policy study is the theoretical basis of the research on policy implementation of teachers training, and the study on the process and effects of the teachers training policy implementation can help deepen the understanding of the theories of public policy implementation. Thus, taking the Chinese basic education reform as the background, the present dissertation analyzes the causes for various problems existing in the implementation of the primary school teachers training policy and suggests measures for improvement. This study chooses the actual teachers’ training policy implementation of the SJD in Shanghai as the target case of the research, setting the time in the period of the “Tenth-five-year Plan”. There are two reasons for choosing this target case: firstly, the beginning of the “Tenth-five-year Plan” also marks the launching of Chinese basic education reform and therefore the policies issued in this period is of great value to research; secondly, established in 1997, the SJD of Shanghai City has not overcome the dual existence of urban and rural structures, resulting in the disparity between economic development and education development and causing discrepancy between the teachers in urban areas and rural areas, which make it meaningful to study the teachers’ training policy implementation in this area and can serve as a sample in the current situation of Chinese economic development disparity. 1. Background This study studied the primary-school teachers training policy implementation of SJD in Shanghai City during the period of Chinese “Tenth-Five-year Plan”. The research methodologies mainly included: the analysis and reading of the policy documents; the interviews of the education administrative staffs, school leaders, and teachers; and the questionnaire survey to the primary school teachers (target group of the policy). Teachers’ quality is directly related to the effectiveness of the basic education reform and the implementation of teachers training policy is an important means to improve teachers’ quality. Through research, the dissertation discussed various causes for the poor performance of the teachers training policies in SJD and the following conclusions are drawn. First, from the perspective of ideas and concepts, the advocacy and mobilization work about the teachers’ training policy implementation has been enhanced in SJD and the target groups like many education workers have acquired a new understanding about the teachers training policy. However, there still exist misunderstandings among some teachers, leading to the lack of identification of the training policies, which is an important cause for the poor performance of the policy implementation. Second, from the perspective of practices, the EBOSJD have realized the importance to effectively carry out the teachers training policy and have treated it as an important task. However, such recognition is not sufficient enough. There still lack research and planning on teachers training policy. The contents of training policies were not concrete enough, irrelevant to the actual situations, and failed to account to the regional differences of urban and rural areas and between teachers. The implementation of the policy was too rigid and difficult to receive better effects. Third, judging from the specific policies, in order to effectively carry out the teachers training policy, the EBOSJD and schools both provided relevant regulations about how to implement the policies to set standards for teachers’ behaviors in the process of implementation and they also have made some helpful attempts in establishing the teacher evaluation system. However, the regulations in the policies are still quite vague, with too many descriptive indexes and less quantitative indexes and due to poor communication channels, the implementation of teachers training policy had difficulties in achieving the expected effects. A systematic perspective, the policy implementation is an organic entity constituted by various implementing organizations, staffs, and targeting groups. Those elements are interdependent and interacted. And it is the communication and coordination that makes the different elements to adopt and cooperate with each other so as to exert the integral function of the system and improve the implementing efficiency. In the process of teachers training policy implementation, due to the ineffective communication and coordination between local government, educational authorities and educational workers, there are often evasiveness and disputes occurring in the implementation process. Communication is the process of the information exchange in the policy implementation, and also the procedure to gain unified methods on policy goals, methods, and means and so on. However, in the implementing process of teachers training policy, they fail to realize the importance of communication. From the vertical perspective, because that the policy per se from the upper authorities is lifeless and fail to reach the executants through effective communication, thus leading the executants’ inadequate understanding about the policy and reluctant support. At the same time, due to lack of communication and coordination, the upper authorities also are unable to know the specific situation of the policy implementation. From the lateral perspective, since the implementation of teachers training policy is often involved with the division of labor and cooperation of numerous departments and staffs, conflicts are thus inevitable. And in the actual policy implementation process, the local government, the educational authorities and the educational workers often lack essential communication and coordination, and have disputes, misunderstandings, and conflicts all the time, unable to effectively carry out the teachers training policy. Taking the example of a educational authority, due to different division of work, the supervision department, in order to effectively implement the quality-oriented education policy made by the Party and State, often develops corresponding regulations on teachers training based on the requirements of quality-oriented education and supervises the schools in its administrative range accordingly. However, the teaching and research department, in order to improve the teaching quality, puts more stress on the rate of students entering higher grades. And the two departments lack communication and coordination and carries out the policy in their own ways, which poses enormous difficulties in implementing and advocating the teachers training policy. 2 Recommendation The current status of implementation of primary school teachers training policies in SJD represents the current status of that in China to a certain degree. There are problems in the implementation of teacher training policies in SJD, an economic developed area in China, let alone in other underdeveloped areas. Therefore, based on the analysis of the current implementation of teacher training policies in SJD, this section will further analyze how to improve the implementation status of teacher training policies in China. 2.1 Improving all aspects of policy implementers’ quality The quality of policy implementers directly influences the quality of policy implementation. Policy implementers should be trained according to teacher training policies to meet the demand of policy implementation on the quality and quantity of qualified implementers. First, policy implementation means the distribution of interests and adjustment of behaviors to a certain degree, and implementers need to be highly responsible. Leaders of educational administrative departments should study and be trained to fully realize the importance and urgency of implementing teacher training policies in nowadays. The general educators should fully realize the importance of teacher training policies to teachers themselves and to the whole society. Second, the policy level and management level of policy implementers should be improved. Problems of teacher training policy implementation are closely related to the low policy level and management level of policy implementers in a way. The low policy level of implementers makes them incapable of precisely interpreting the spirit of teacher training, creatively performing policies, making full use of policy resources or coordinating all kinds of relations, and the quality of policy implementation cannot be assured. At the same time, the low management level of educational administrative departments makes them unable to arouse the general educators' initiative in implementing training policies.#p#分页标题#e# 2.2 Strengthening identification of policies of policy implementers and target groups In the process of implementing teacher training policies, the publicity of policies plays an important role. If there is enough publicity and persuasions work of the policy, educational administrative departments and the educators can well interpret corresponding spirits of the policies, make no mistakes in understanding of corresponding content of the policies and reduce the possibility of policy implementation deviation on one hand, and on the other hand, the identification of policies of policy implementers and target groups can be strengthened. The effect of policy implementation often depends on the attitudes of policy implementers and target groups towards the policy. If there is enough publicity of teacher training policy, educational administrative departments and educators realize the importance of teacher training, and take it seriously. In order to strengthen the publicity and persuasions work of teacher training policies, efforts should be made in the following two aspects: on one hand, through all kinds of explanations and illustrations on teacher training policies, educational administrative departments and educators’ understanding and interpretation of training policies should be improved and further transferred into active and conscious conducts to assure the smooth implementation of training policies. On the other hand, through publicity and report, and appropriate criticism and praises of training policy implementation in different schools in different areas, setting examples in schools that have done well, and warning schools that haven’t, correct public opinion guidance will be formed to motivate the initiative and responsibility of educational administrative departments and the general educators. a systematic perspective, the policy implementation is an organic entity constituted by various implementing organizations, staffs, and targeting groups. Those elements are interdependent and interacted. And it is the communication and coordination that makes the different elements to adopt and cooperate with each other so as to exert the integral function of the system and improve the implementing efficiency. In the process of teachers training policy implementation, due to the ineffective communication and coordination between local government, educational authorities and educational workers, there are often evasiveness and disputes occurring in the implementation process. Communication is the process of the information exchange in the policy implementation, and also the procedure to gain unified methods on policy goals, methods, and means and so on. However, in the implementing process of teachers training policy, they fail to realize the importance of communication. From the vertical perspective, because that the policy per se from the upper authorities is lifeless and fail to reach the executants through effective communication, thus leading the executants’ inadequate understanding about the policy and reluctant support. At the same time, due to lack of communication and coordination, the upper authorities also are unable to know the specific situation of the policy implementation. From the lateral perspective, since the implementation of teachers training policy is often involved with the division of labor and cooperation of numerous departments and staffs, conflicts are thus inevitable. And in the actual policy implementation process, the local government, the educational authorities and the educational workers often lack essential communication and coordination, and have disputes, misunderstandings, and conflicts all the time, unable to effectively carry out the teachers training policy. Taking the example of a educational authority, due to different division of work, the supervision department, in order to effectively implement the quality-oriented education policy made by the Party and State, often develops corresponding regulations on teachers training based on the requirements of quality-oriented education and supervises the schools in its administrative range accordingly. However, the teaching and research department, in order to improve the teaching quality, puts more stress on the rate of students entering higher grades. And the two departments lack communication and coordination and carries out the policy in their own ways, which poses enormous difficulties in implementing and advocating the teachers training policy. 2.3 Construction of reasonable policy system The effective implementation of a policy often depends on the scientificity and rationality of the policy. No wonder that making a policy scientific, reasonable and rigorous is the basis of implementing it successfully. Poor enforcement of teacher training policies is due to its lack of scientificity to a large extent. The process of making teacher training policies is lack of objectivity and adjustment to local conditions. Policy making should be based on objective reality, and policies are reflections of actual facts. Objective reality is the basis and premises of making policies, including teacher training policies. Policy making should take specific school conditions and education development levels in different areas into consideration, and the approach of one-schedule-fits-all cannot be adopted. If we adopt one policy in the whole country, it will be easy to carry out in developed areas, but not in underdeveloped areas. Therefore, scientific research and development plan research on teacher training policies should be strengthened to precisely grasp information about local and even national environment, such as education and teaching development, and target group, including teachers and students, so that policy implementation plans and all kinds of measures can be based on scientific understanding, and different policy aims and standards can be made in different areas to assure the smooth implementation of policies. At the same time, the education policy implementation departments of various degrees in different areas are required to highly value the position and function of education science research and plan research in education decisions, and organize and cultivate a group of education researchers for suggestions on education policies. In addition, advanced experience on teacher training policies from abroad can also be absorbed to make up our own weaknesses. 3.Conclusion Seeing from the perspective of system theory, policy implementation is carried out by the organic integrity composed of several performing institutions, implementers and target groups. All these components restrict as well as depend on each other. Communication and coordination is to make these factors adapt and cooperate with each other, so that the integrative function of the whole system can give full play and the implementation efficiency can be increased. The implementation of teacher training policy also goes in this way. First, it must be assured that the instruction information channels and feedback information channels of teacher training policy implementation are separated, so that both can be objective and clear. This is the primary problem to solve for educational administrative departments and educators in implementing policies. In this way, the publicity of policy implementation can be enough and the identification of policy implementers and target groups can be attained. At the same time, the accuracy of feedback information of training policy implementation can be assured, and disharmony between policies and objective reality can be remedied and made up timely. Only in this way can interest leaning problems be found timely in the process of policy implementation and implementation deviation is reduced. Second, information propagating mechanism of teacher training policy should be reformed. Difficulty in information flow of training policy implementation and lack of communication and coordination between implementers and target groups will directly lead to the difficulty in policy implementation. To improve the information propagating mechanism of training policy implementation, a integrated information propagating net should be built to make target group really understand the connotations of teacher training policy and the meaning of its implementation, so that the policies can be carried out successfully and the identification of policy implementation effect of target group can be attained. BIBLIOGRAPHY Agranoff. R. (1991). Human Service Integration: Past & Present Challenges in Public Administration. Public Administration Review 51, pp:533-542. Amital Etzioni. Modern Organizations. In Warren G. Bennis, Chaning Organizations. New Youk: Mc Graw Hill, 1966. Bardach, E. (1977). The Implementation Game. MIT Press, Cambridge, p.57. Bear, H., Caldwell, B. and Millikan, R. 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