随着我国事业单位人事制度改革和新《义务教育法》的修订，义务教育教师与学校、政府之间的法律关系引起了人们广泛的讨论。依据我国《教育法》和《教师法》的规定，教师聘任关系是指教师与学校在平等自愿的基础上签订聘任合同后形成的横向型法律关系，不同于教师任命制度之下教师与政府之间的纵向型法律关系。从法理上来看，学校是聘任教师的主体，教师与学校之间享有平等的地位，教师权益受损后应当依靠法律手段而非行政手段来解决。但是，当前义务教育学校实施的教师聘任制，政府仍然是聘任、解聘和分配教师的主体，教师因为缺乏集体劳动权而无法与政府、学校形成对等的关系，人事诉讼制度不完善也使得教师权益受损后难以获得救济。总的来说，教师聘任制度存在以下几个问题：第一，学校并未真正获得人事权；第二，形式上由学校聘任教师而实质上由政府聘任教师的状况导致了政府、学校和教师权利义务关系混乱；第三，教师权益难以获得保障；第四，教师职业行为出现偏差，尤其是有偿家教屡禁不止；第四，竞争机制尚不完善，教师终身制度仍未被打破。教师聘任关系作为事业单位人事关系的组成部分，其调整受到事业单位人事制度改革思路的制约，即强调教师职业的专业性质和学校的用人权。教师管理制度改革的思路则强调教师职业的公务性质，弱化甚至剥夺了学校的用人权。当前我国教师人事制度改革正摇摆于这两条改革思路之中。采用人事制度改革思路，由学校直接聘任教师可能会造成三种不利后果：第一，造成校际之间人才竞争，拉大义务教育学校的校际差距；第二，导致义务教育教师职业公务性受到损害；第三，教师权益缺乏保障。因此，为保证义务教育教师职业的公务性，保障教师的合法权益，由政府聘任义务教育教师可能更符合我国的实际情况。对此，调整我国现有的义务教育教师聘任关系可以形成三种不同的政策选择：第一，将义务教育教师纳入公务员队伍；第二，建立独立的教育公务员制度；第三，把义务教育教师规定为国家工作人员。

Discussions on relations among teachers ,schools and governments have been being hotly arguable at present days going with reforms of personnel relationships and amendment of Compulsory Education Law.According to Education Law and Teacher’s Law, teacher employment relationship is a horizontal-type one based on employment contraction, which is different from vertical relationships between teachers and governments in teacher appointment systems. In theory, schools should employ teachers independently, have equal status with teachers and teacher could get repairs by legal way when they are unlawful treated. But after teacher employment system has been put in practice for years, governments are employers for teachers, teachers are not equal with governments and schools for the absence of collective rights, and teachers is hard to get right repairs for faultiness of personnel lawsuit systems. Generally speaking, there are several problems: first, schools cannot employ teachers independently; second, rights and obligations of governments, schools and teachers are mixed up; third, teachers’ legal rights can not be protected well; fourth, teacher depart from the normal regulations, especially teaching out of schools for profits; fifth, teachers hold their positions permanents without periodic contract renewals.As an integral part of personnel relationships, the adjustment of teacher employment relationships is restricted by personnel system reform in our country, which emphasizes on professional characteristics of teachers and personnel rights of schools. The reforms of teacher management systems are stress on characteristics as civil servants, and schools are deprival of personnel rights. Teacher personnel systems are fluctuating between the two reform paths. Taking the first one, three unfavorable results may happen: first, competitions may increase inequality among schools; second, it may be tamper with teachers to fulfill their official duties; third, it is hard for teachers to get complete profession protections. In order to make teacher fulfill their official duties, to protect teachers’ legal rights, it is coincident with facts in schools to take governments as employers. According to this conception, there are three choices: first, take teachers in compulsory education as civil servants; second, construct independent educational civil servant; third, take teachers as government employees.