2013年教育部、国家发展改革委、财政部联合出台了《关于全面改善贫困地区义务教育薄弱学校基本办学条件的意见》，随后各省市也制定了薄弱学校基本办学条件改进的具体实施方案，启动了全国范围内改善薄弱学校办学条件的工程。截至2019年底，全国义务教育阶段薄弱学校都基本达到了“20条底线”的办学条件标准，政策目标基本实现。

本研究旨在探讨县级政府和一线学校作为基层执行者，是如何阐释并执行“全面改善贫困地区义务教育薄弱学校基本办学条件（下文中简称为“全面改薄”）”政策的，并在此基础上探究政策执行过程的问题及影响因素。本研究采取个案研究法，按照典型性、代表性和信息充分性的原则，选取陕西省Y县的“全面改薄”政策执行过程作为个案。本研究运用文本分析法研究“全面改薄”政策的文本内容，并运用访谈法、实物资料收集法收集相关资料，来研究陕西省Y县的政策执行行为、过程和效果，并探究陕西省Y县在“全面改薄”政策执行过程中的问题及影响因素。

研究发现，第一，Y县“全面改薄”政策执行中，基础建设项目成为实施重点，这既是执行者行为选择的结果，也是执行行为随政策阐释的变化而改变的结果；第二，Y县政策执行的过程包括两个阶段，一是摸底调查、申报规划，二是办理手续、施工验收；第三，经过“全面改薄”，Y县学校的基本办学条件得到保障，后勤生活设施明显改善；第四，Y县的“全面改薄”政策执行中也存在诸多问题，包括资金短缺、行政手续繁琐、配套设施和长效维护机制欠缺、资金浪费、学校软实力不足、社会参与度低等。

在斯皮尔兰提出的政策认知框架下，本研究从政策信号、执行者和情境三方面分析了“全面改薄”政策执行的影响因素：首先，政策文本作为指导政策执行的官方话语，一方面以官方对“薄弱”的定义局限了执行者对于“薄弱”的认知，另一方面所设置的“底线”与执行的灵活性产生冲突；其次，执行过程中存在双重执行主体，内嵌于科层制系统的县教育局更多受到上级要求和已有经验的影响，学校作为最末端执行者则更具主动性；再次，执行者的政策阐释既受到文化与制度的影响，也受到区域和学校现状的制约。

最后，在反思Y县“全面改薄”政策执行过程的基础上，本研究总结经验如下：第一，加强顶层设计；第二，加强政策解读和宣传；第三，完善包括经费机制、审批“绿色通道”、社会监督机制在内的政策执行保障体系。

In 2013, the Ministry of Education, the National Development and Reform Commission, and the Ministry of Finance jointly issued the Opinions on Comprehensively Improving the Basic Conditions for Weak Schools at The Stage of Compulsory Education in Poverty-stricken Areas, and subsequently, provinces also formulated specific implementation plans for the improvement of weak schools. By the end of 2019, all weak schools at the stage of compulsory education nationwide have basically met the "20 Bottom Lines " requirements for school conditions, and the policy goals have been basically achieved.

The purpose of this study is to explore how county-level governments and schools interpret and implement this policy, and to investigate the problems and influencing factors of the policy implementation process. This study selects the implementation process of this policy in County Y of Shaanxi Province as a case study based on the principles of typicality, representativeness, and adequacy of information. This study uses the textual analysis method to study the content of this policy. It also uses the interview method and physical data collection method to collect relevant information to study the behavior, process, and effect of the policy implementation in County Y, and to investigate the problems and influencing factors of the policy implementation in County Y of Shaanxi Province.

The study found that, first, infrastructure projects became the focus of policy implementation in County Y. This was the result of both the choice of the implementer and the change in implementation behavior in response to changes in policy interpretation. Second, the process of policy implementation in County Y included mapping, declaration of plans, procedures, and construction and acceptance. Third, the effect of the policy is that basic school conditions are guaranteed and living facilities are significantly improved. Fourth, there are many problems in the implementation process in County Y, including shortage of funds, cumbersome administrative procedures, lack of supporting facilities and long-term maintenance mechanisms, waste of funds, lack of soft power in schools, and low community participation.

With the help of the cognitive framework of policy implementation proposed by James P. Spillane, this study analyzes the factors influencing the implementation of this policy from three aspects: policy signals, implementers, and context. First, as the official discourse guiding policy implementation, the official definition of policy text limits the implementers' perception of "weakness", and the official "bottom lines" conflicts with the flexibility of implementation. Second, there is a dual implementation body in the implementation process. The County government, which are embedded in a hierarchical system, are more influenced by the requirements and experiences of their superiors, while the schools, as the end implementers, are more proactive. Third, the policy interpretation of implementers is influenced by both culture and systems and constrained by the current state of the region and schools.

Finally, based on the reflection of the policy implementation process in Y County, this study summarizes the following lessons: first, strengthen the top-level design of the policy; second, strengthen the policy interpretation and publicity; third, improve the policy implementation guarantee system including funding mechanism, approval "green channel" and social supervision mechanism.