为推进义务教育均衡发展，破解民办学校择校难和择校乱的问题，政府出台了“公民同招”政策并取得了一定成效。但值得注意的是，政策在执行层面仍然存在一些困境，有必要对其面临的问题及影响因素进行分析。为此，本文以湖南省长沙市为例，通过文本分析法、访谈法，从利益相关者视角出发探讨长沙市执行“公民同招”政策的难题，并运用美国学者米瑞迪斯·霍宁的教育政策分析模型，分析影响政策执行的因素，进而尝试提出优化政策的相关建议。
“公民同招”政策是指民办义务教育学校招生纳入审批地统一管理，与公办学校同步招生；对报名人数超过招生计划的，实行电脑随机录取的招生政策。该政策施行三年来，虽实现了部分目标，但经调研发现，仍然面临着如下困境：一是民办初中因利益冲突、对政策合法性的不认同以及民办教师的不支持，在一定程度上阻碍了政策的执行；二是部分家长和学生因差异化教育需求无法得到满足，也反对该政策；三是地方政府的其他配套招生政策影响了政策执行的成效。
造成上述困境的因素主要有三：首先，从政策本身来看，政策的合法性受到质疑，且政策目标忽略了利益相关者的不同诉求，加之强制性工具的使用造成“一刀切”问题；其次，政策执行者存在某种或机械式或变通式执行的投机行为，以致于政策执行不到位、目标群体因利益冲突存在异议等；最后，在政策环境上，民办学校发展理念和家长教育观念等社会文化因素的不同也在很大程度上影响着政策执行的效率。鉴于此，有必要从以下方面改进：一是进一步优化“公民同招”政策文本，增强政策弹性；二是充分考虑政策执行者和目标群体的不同利益诉求，进行政策调试；三是合理引导政策环境并积极作为，引导家长树立正确的教育观念，逐步缩小校际差距；同时加强政策宣传和监管。

In order to promote the balanced development of compulsory education and solve school-selection problems of private schools, the government has introduced the policy of "Equal Enrolment for Public and Private Compulsory Schools” and achieved certain results. However, it is worth noting that there are still challenges in the implementation of the policy, and it is necessary to analyze its dilemmas and influencing factors. In view of this, taking Changsha City, Hunan Province as an example, this paper analyzes the dilemma of the implementation of the policy from the perspective of related stakeholders through the text analysis method and interview method, and then uses the American scholar Meredith I. Honig’s education policy analysis model to analyze the factors that influence the implementation of the policy and puts forward optimization suggestions to the policy
"Equal Enrolment for Public and Private Compulsory Schools" refers to the policy that private compulsory schools are included in the same management system as public compulsory schools, and its enrollment is synchronized with public schools; and if the number of applicants exceeds the enrollment plan, the computer random admission is implemented. In the three years since the implementation of the policy, although some of the goals have been achieved, it still faces the following dilemmas: Firstly, interest conflicts, disagreement of the legitimacy of the policy and lack of support from private school teachers jeopardize the policy implementation. Secondly, due to the unmet needs of differentiated education, some parents and students also oppose this policy. Thirdly, other supporting admission policies of local governments have affected the effectiveness of the policy.
There are three main factors that contribute to this dilemma: First of all, from the policy itself, the legitimacy of the policy lacks support, the policy goal neglects needs of different stakeholders, and the adoption of mandatory tools could easily cause the problem of "one size fits all". Secondly, the implementation of the policy may be inflexible and distorted, and the target groups may raise objections due to conflicts of interest. Lastly, from the perspective of policy environment, differences in social and cultural factors such as the development concept of private schools and parenting philosophy also affect the efficiency of the policy to a large extent. In view of this, it is necessary to improve from below aspects: Firstly, further optimize the policy narrative to enhance its flexibility. Secondly, fully consider the different interests of policy enforcers and target groups to polish the policy. Thirdly, reasonably guide the policy environment and take active actions to guide parents to establish correct education ideology, gradually narrow the gap between schools, and strengthen policy publicity and supervision.