教育政策合法化理論建構與實際運作之研究

Abstract

教育政策合法化理論建構與實際運作之研究 摘 要

本研究之主要目的，在於探討教育政策合法化的基本概念與實施歷程，並透過調查研究與訪談，瞭解我國教育政策合法化的現況，最後根據研究結論，提出實施或改善教育政策合法化的建議。 為達致上述目的，本研究兼採文獻分析、問卷調查與訪談等研究方法：首先，透過文獻分析，探討教育政策合法化的基本概念與實施歷程，以瞭解教育政策合法化的涵義、範圍、原則、影響因素、策略、程序、檢討；其次，根據文獻探討之結果，編製「教育政策合法化研究調查問卷」，進行調查研究，藉以瞭解教育政策合法化的範圍、原則、影響因素、策略、程序、檢討；再次，根據文獻探討之所得，編擬「教育政策合法化理論建構與實際運作之研究訪談大綱」，以蒐集關於教育政策合法化範圍、原則、影響因素、策略、程序、檢討等之意見；最後，根據研究結論，提出具體建議。 本研究之調查研究對象計有三類：一為制訂教育政策者；二為影響教育政策者；三為執行教育政策者。共發出問卷561份，實得有效問卷388份，問卷資料處理採SPSS for Windows 12.0統計套裝軟體進行統計分析。 此外，本研究之訪談對象亦有三類：本研究一為制訂教育政策者；二為影響教育政策者；三為執行教育政策者。共針對16人進行半結構式訪談，並由研究者自行歸納分類，進行資料分析。 綜合文獻分析之結果與調查研究及訪談之發現，獲得以下結論： 一、教育政策合法化乃是將教育政策完成法定程序，取得正當性，以獲取人民認可與支持的動態過程。 二、應合法化的教育事項為有全國一致性質的重大政策；而目前最應加強合法化的是教育經費分配與補助。 三、教育政策合法化應遵守實現教育目的、遵守程序正義、立法從寬執法從嚴等原則；但實際上除延請專業人員的情況稍佳外，其餘皆有待加強。 四、應該影響合法化的參與者有教育部、立法院、行政院人員等；而在實際上最應提升其影響力的是教師與學生。 五、合法化過程中應該考慮的背景因素有教育、世界、社會等；在實際上最不足的是教育的本質，考慮太過的則是政治生態。 六、應該有效的合法化策略有訴諸媒體、遊說等，應該不太有效的有舉辦研討會、提交研究報告等；而實際運用最不足的是參與立法規劃，運用太多的是投書。 七、應該產生影響的合法化程序有諮詢、提案、審核、審查等；但實際上除立院程序及其他委員會的聯合審查外，其餘皆尚未完備。 八、合法化曾經遭遇的困難有人治色彩過重、政黨過份干預等，其中以議事效率不彰為最；且普遍存在不合時宜、陳義過高等缺失，以偏重行政制度為最。 九、改進合法化的對策中，應該可行的有公開過程與資訊、適時鬆綁法律等；在實際上最須加強的是提升人員的專業知能與素養。 十、大致而言，不同背景變項填答者對於合法化應如何進行與實際進行之情形的意見大同小異，若自整體觀之，則以不同職務者彼此間的意見差異稍大。 十一、教育政策合法化理論建構的修正模式，可以圖8-1示之。

研究者根據文獻探討內容、調查與訪談研究發現，以及自身意見，提出實施與改善教育政策合法化的建議： 一、規劃教育經費與學雜費制度、學生與家長的權利義務、教育的評鑑制度等事項的合法化。 二、立法過程中嚴格掌握立法時效並謀穩定適用、堅守教育原理與目的之符應、遵守程序正義使實質合法。 三、適當平衡中央教育行政機關與立法機關的立法權力、角色與功能。 四、建立完善的聽證與諮詢制度，充分容納不同意見以減低可能遭遇的阻力。 五、加強相關人員的教育與法律專業素養，並成立教育政策合法化智庫。 六、重新梳理並檢討現有的教育法律，適時予以修正改善。 七、重新調整教育部組織架構，並增設法制辦公室以取代現有的法規委員會 八、積極參與教育政策立法的規劃或提供相關資源，以助達成立法目的。 九、審慎評估遊說、請願、參加公聽會、舉辦研討會、出版刊物等策略的有效性。 十、於運用投書策略之前，先考慮運用其他策略的可行性。 十一、利益團體與媒體應理性約束自身的影響力無限上綱。 十二、執行教育政策者須更主動積極參與教育政策的制訂與合法化。A study on theory construction and actual operation of educational policy legitimation

Abstract

The objectives of this study are: (1) to explore the primary concepts of educational policy legitimation and its practice, (2) to investigate the current situation of educational policy legitimation, (3) to summarize the results and offer some suggestions for practicing or improving educational policy legitimation. In order to accomplish the objectives, the study adopts documentary research, questionnaire survey and interview. First, through documentary analysis, the study explores the primary concepts of educational policy legitimation and its practice to understand the meanings, fields, principles, influential factors, strategies, processes, and reviews. Second, according to the results drawn from literature, the researcher develops "the study questionnaire of educational policy legitimation " used for investigation survey to understand the fields, principles, influential factors, strategies, processes, and reviews of educational policy legitimation. Third, according to the results drawn from literature, the researcher draws up "the interview outline of a study on theory construction and actual operation of educational policy legitimation " used for understanding the fields, principles, influential factors, strategies, processes, and reviews of educational policy legitimation. The subjects of this study, on questionnaire survey with a sample size of 561 subjects, and the effective number of 388 subjects, are randomly selected from those who - formulate educational policy, influence educational policy, and implement educational policy. The data from the questionnaire is processed for statistical analysis using "SPSS for Windows 12.0" statistical package software. Additionally, the subjects of this study on semi-structured interviews , with a sample size of 16 subjects, are selected from those who - formulate educational policy, influence educational policy and implement educational policy. The data from the interviews are sorted, homogenized by the researcher and continue to be analyzed. From the findings of document analysis, questionnaire survey and interview, the following conclusions are drawn: 1. Educational policy legitimation is the dynamic process for accomplishing the legal procedure of educational policy and acquiring validity of the people's approval and support. 2. Educational agenda to be legitimated is an important policy with nation-wide acceptance. Hence, legitimation of educational budget redistribution and subsidy should initially be reinforced. 3. Educational policy legitimation should follow the principles of educational end accomplishment, procedure justice, bountiful legislation and strict enforcement of the law. Currently, the expert has been invited and the rest is expected to be completed. 4. Actors from the department of education, legislature and executive staff should influence legitimation. Actually, it should promote increased influence from teachers and students. 5. In the process of legitimation, background factors including education, world and society should be taken into consideration. It is seen that, the most underrepresented is the essence of education, and most overrepresented is political ecology. 6. Legitimation strategy including media and lobbying should be effective, seminar and study report should not be effective. Actually, involvement of legislative formulation is not sufficient, mailing lists are over utilized. 7. Legitimation procedure includes consultation, proposal, examination and inspection. Currently, except legislature procedure and united investigation of other committee, the rest is not completed. 8. The difficulty of legitimation are autocratic and party over- intervention, and the ineffectiveness of the council is the most difficult in all of above. A common deficiency is irrelevancy and creating an elitist dialogue; though most of it is to over emphasize administration system. 9. To improving legitimation, making public of process and information; and releasing appropriate law is feasible. In practice, advanced professional knowledge and capacity are very important. 10. Generally speaking, opinions about how to practice and actual practice of respondents with different backgrounds are similar. Through observation, it is seen that the opinions of respondents of different works have more discrepancies. 11. Entire framework of educational policy legitimation as figure 8-1. From the findings of document analysis, questionnaire survey, interview, and opinions of researcher, there are several suggestions for practice and improvement of educational policy legitimation. 1. To formulate the legitimation of educational budget; tuition and incidental fee systems; rights and obligations of students and parents; education assessment systems. 2. To control legislative process strictly in expeditious, stable and applicable manner while emphasizing educational principium and purposes, in procedural justice and essential legality.

3. To balance the legislative power, character and function properly between central education administration organizations and legislature. 4. To establish the integrity of hearing and consultative systems by accepting diverse opinions while reducing possible resistance. 5. To improve the equipment of education and legislation knowledge for related personnel and to establish a think tank for education policy legitimation. 6. Rearrange and review contemporary educational law, ameliorate and effect improvement at the appropriate moment. 7. Rearrange the organization frame of ministry of education and add the department of legislative to replace the legal affairs committee. 8. To participate actively in formulation of educational policy legislation or provide related resources for enhancing the goal of legislation. 9. To evaluate cautiously the effectiveness of the strategies of lobbying, hearing, seminar and publication. 10. Prior to implementing mailing lists, consider other strategies. 11. Interested groups and media should be rational with self-discipline and should not have unchecked influence. 12. People who implement education policy should participate actively in the formulation and legitimation of education policy.