构建终身教育体系是国家中长期教育改革和发展规划纲要提出的战略决策。然而，历经20年的努力，我国终身教育体系为何仍难以构建？阻碍构建终身教育体系的现实问题与当代困惑主要有四个方面：一是终身教育体系与既有国民教育体系的概念界定仍未明晰，固有的国民教育体系的转型与整合，已经成为构建终身教育体系的重大挑战；二是“校外教育”发展面临的体制问题长期得不到解决，成人教育开始陷入发展瓶颈，没有成熟而发达的校外教育资源，终身教育体系构建无异于一句空话；三是终身教育立交桥与各种教育资源整合的困惑，在于打通各种教育壁垒与阻隔，需促进由于历史原因和利益博弈所造成的纵向割裂、横向阻断的教育体制变革；四是国家终身教育立法难以实现，而地方性终身教育立法又往往狭隘化了终身教育的内涵，政府职能处在弱化状态，致使出现我国终身教育难以开展的困顿局面。%Constructing lifelong education system is the strategic decision proposed in the Outline of China's National Plan for Medium and Long-term Education Reform and Development. Why is it still difficult to establish lifelong education system in our country after 20 years of efforts? There are mainly four aspects hindering its construction:firstly, the definition of the lifelong education system and the national education system is still not clear, and the inherent transformation and integration of the national education system has become a major challenge for setting up lifelong education system;secondly, the system problem of out-of-school education development has not been solved for a long time, which leads to a bottleneck for adult education development. Without mature and rich out-of-school education resources, establishing lifelong education system is meaningless;thirdly, the construction of lifelong education overpass and the integration of various education resources is to get through all kinds of barriers and blocks in education caused by historical reasons and benefit gambling in order to promote educational system reform; fourthly, the national lifelong education legislation is difficult to achieve, and the local legislation of lifelong education tends to narrow its connotation. Eventually, the weakened government function results in the difficult situation of lifelong education.
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