校舍安全何以保障?
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摘要
"5·12"汶川大地震中,中小学幼儿园校舍大面积垮塌导致数以千计学生死亡的悲剧引发社会各界对学校校舍安全的关注。本文首先从法律规章制度体系、财政供给体制、审批程序及质量监理三个方面分析了我国学校校舍建设尤其是地震安全保障的体制性缺陷;然后介绍了美国加州《非尔德法案》及相关法案体系对保证学校校舍地震安全的成功经验,尤其是强调了州建筑师处和州拨款委员会的重要作用;最后提出构建我国学校校舍建设地震安全保障体系的体制性建议——颁布一部专门的《学校地震安全法》,授权一个专业的省一级机构专司校舍建设质量以及组建一个持久的校舍建设财政保障机构。
The tragedy of thousands of students killed by the collapsed schools during China's Wen- chuan earthquake on May 12,2008 has become one of public concerns on seismic safety of school building.This paper first explores the institutional flaws that fail to guarantee school building safety by analyzing the laws and regulations,financing mechanism and approval procedure and inspection of school construction.Then it presents Field Act,a law on school building seismic safety in Cali- fornia and some other Acts concerning seismic safety of school buildings and facilities and explains why the Acts have been proven effective to guarantee seismic safety of school buildings;particular- ly,the roles played by the Division of State Architect(DSA)and the State Allocation Board (SAB)are highlighted here.Finally,it concludes with policy suggestions that include enacting a law on School Earthquake Safety and authorizing a professional agency at provincial level to exercise the supervising function on school building quality and establishing a funding allocation board as well.
The tragedy of thousands of students killed by the collapsed schools during China's Wen- chuan earthquake on May 12,2008 has become one of public concerns on seismic safety of school building.This paper first explores the institutional flaws that fail to guarantee school building safety by analyzing the laws and regulations,financing mechanism and approval procedure and inspection of school construction.Then it presents Field Act,a law on school building seismic safety in Cali- fornia and some other Acts concerning seismic safety of school buildings and facilities and explains why the Acts have been proven effective to guarantee seismic safety of school buildings;particular- ly,the roles played by the Division of State Architect(DSA)and the State Allocation Board (SAB)are highlighted here.Finally,it concludes with policy suggestions that include enacting a law on School Earthquake Safety and authorizing a professional agency at provincial level to exercise the supervising function on school building quality and establishing a funding allocation board as well.
引文
②见2004年6月18日教育部、国家发展和改革委员会、财政部《关于中小学危房改造和校舍安全工作有关问题的紧急通知》，该通知提及2004年4月26日内蒙古自治区通辽市科尔沁区义庆和镇回民村小学教室垮塌学生死伤事件；2005年10月12日《平昌县教育局关于澌岸小学和白衣小学校舍垮塌事故责任追究情况的通报》提及四川巴中地区平昌县在没有地震的情况下校舍垮塌事件。
①据有关结构工程师的意见，砖混结构的建筑不见得一定不防震，重要的是房屋结构，见《中国教育报》2008年6月27日第8版。所以，这种指导性却不专业的通知是否得当也值得商榷。
[1]杨彬彬，赵何娟．校舍忧思录[N]．财经．2008-06-25．
[2]吴吴，王斌斌．我国中小学建设标准现状及问题研究[J]．现代中小学教育，2007，(11)：1—3．
[3]张仲启．对实施全国中小学危房改造工程的初步思考与建议[J]．基建优化，2001，(5)：35—36．
[4][20]Jephcott D.K,Hudson D.E.(1974).The Pedormance of Pubic School Plants during San Fernando Earthquake,Pasadena,CA:California Institute of Technology,California Seismic Safety Commission.
[5][21][22][23][24][28][30]Barclay,D.(2004).Assessing seismic safety policy. MURJ.2004(10):23.
[6]Bingler,S,Quinn,L.& Sullivan,K.(2003).Schools as centers of community:A citi- zens' guide for planning and design,the National Clearinghouse for Educational Facilities, Washington D.C.
[7] OECD.(2005).Recommendation concerning earthquake safety in schools available to download at www.oecd.org/edu/schoolsafety.
[8]OECD.(2004).Keeping Schools Safe in Earthquakes.OECD publication.
[9][10]中华人民共和国住房和城乡建设部．中华人民共和国国家标准：建筑工程抗震设防分类标准[Z]．2008．
[11]中华人民共和国家计划委员会．中小学校建筑设计规范[Z]．1986．
[12]中华人民共和国教育委员会计划建设司．农村普通中小学校建设标准(试行)[Z]．北京：人民教育出版社，1997．
[13]中华人民共和国建设部．中华人民共和国国家标准：特殊教育学校建筑设计规范[Z]．2004．
[14]中华人民共和国教育委员会计划建设司．农村普通中小学校建设标准(试行)[Z]．北京：人民教育出版社，1997．
[15]国务院．国务院关于基础教育改革与发展的决定[Z]．2001．
[16][19]教育部．国家计委财政部关于印发《全国中小学危房改造工程实施管理办法》的通知[Z]．2001-04-18．
[17]王蓉．十五期间国家贫困地区预研究——我国义务教育经费的地区性差异研究[EB/ OL]．教育部网页，2001．
[18]丁补之，朱红军．垮塌校舍是怎样建成的[N]．南方周末，2008-06-05．
[25]Cohen,J.(1999).School facility financing:A history of the role of the State Allocation Board and options for the distribution of Proposition 1A funds.Sacramento:California Re- search Bureau,Feb.9.
[26]Alfred E.(2007).Alquist California Seismic Safety Commission,The Field Act and public school construction:A 2007 Perspective,Sacramento,California.
[27]Little Hoover Commission.(2000).To build a better school:A report to the Governor of Cal- ifornia and the California State Legislature.
[29]OECD.(2004).Keeping Schools Safe in Earthquakes.OECD publication.
[31]国务院办公厅．关于印发国家防震减灾规划(2006—2020年)的通知(国办发[2006] 96号)[Z]．
①据有关结构工程师的意见，砖混结构的建筑不见得一定不防震，重要的是房屋结构，见《中国教育报》2008年6月27日第8版。所以，这种指导性却不专业的通知是否得当也值得商榷。
[1]杨彬彬，赵何娟．校舍忧思录[N]．财经．2008-06-25．
[2]吴吴，王斌斌．我国中小学建设标准现状及问题研究[J]．现代中小学教育，2007，(11)：1—3．
[3]张仲启．对实施全国中小学危房改造工程的初步思考与建议[J]．基建优化，2001，(5)：35—36．
[4][20]Jephcott D.K,Hudson D.E.(1974).The Pedormance of Pubic School Plants during San Fernando Earthquake,Pasadena,CA:California Institute of Technology,California Seismic Safety Commission.
[5][21][22][23][24][28][30]Barclay,D.(2004).Assessing seismic safety policy. MURJ.2004(10):23.
[6]Bingler,S,Quinn,L.& Sullivan,K.(2003).Schools as centers of community:A citi- zens' guide for planning and design,the National Clearinghouse for Educational Facilities, Washington D.C.
[7] OECD.(2005).Recommendation concerning earthquake safety in schools available to download at www.oecd.org/edu/schoolsafety.
[8]OECD.(2004).Keeping Schools Safe in Earthquakes.OECD publication.
[9][10]中华人民共和国住房和城乡建设部．中华人民共和国国家标准：建筑工程抗震设防分类标准[Z]．2008．
[11]中华人民共和国家计划委员会．中小学校建筑设计规范[Z]．1986．
[12]中华人民共和国教育委员会计划建设司．农村普通中小学校建设标准(试行)[Z]．北京：人民教育出版社，1997．
[13]中华人民共和国建设部．中华人民共和国国家标准：特殊教育学校建筑设计规范[Z]．2004．
[14]中华人民共和国教育委员会计划建设司．农村普通中小学校建设标准(试行)[Z]．北京：人民教育出版社，1997．
[15]国务院．国务院关于基础教育改革与发展的决定[Z]．2001．
[16][19]教育部．国家计委财政部关于印发《全国中小学危房改造工程实施管理办法》的通知[Z]．2001-04-18．
[17]王蓉．十五期间国家贫困地区预研究——我国义务教育经费的地区性差异研究[EB/ OL]．教育部网页，2001．
[18]丁补之，朱红军．垮塌校舍是怎样建成的[N]．南方周末，2008-06-05．
[25]Cohen,J.(1999).School facility financing:A history of the role of the State Allocation Board and options for the distribution of Proposition 1A funds.Sacramento:California Re- search Bureau,Feb.9.
[26]Alfred E.(2007).Alquist California Seismic Safety Commission,The Field Act and public school construction:A 2007 Perspective,Sacramento,California.
[27]Little Hoover Commission.(2000).To build a better school:A report to the Governor of Cal- ifornia and the California State Legislature.
[29]OECD.(2004).Keeping Schools Safe in Earthquakes.OECD publication.
[31]国务院办公厅．关于印发国家防震减灾规划(2006—2020年)的通知(国办发[2006] 96号)[Z]．
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