我國大學繁星計畫之政策發展與分析
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2018
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本研究旨在析論我國大學繁星計畫之政策發展及現況問題，首先透過文件分析法，就政策發展進行縱貫面及橫切面的廣泛性探討；其次透過焦點團體座談及半結構式訪談等方法進行資料蒐集與分析，包括應然面的政策理念目標及實然面的行政執行成效。政策理念係指由本研究所歸納之6項政策指標-「公平」、「效率」、「效能」、「多元」、「適性」及「卓越」。透過本研究的分析與討論，深入剖析繁星計畫政策內涵與揭櫫之理念目標，發現6項指標都具有理想性與方向性，也都有符合及未盡落實的地方。至於行政執行部分，包括招生名額比率、入學管道變革及整體運作發展等，主要就實務操作上的議題進行分析探討。行政執行議題雖非直屬政策本身，惟政策的良善與否唯有在政策執行過程中才能逐漸體現出來，而政策的作用與影響力，也唯有在執行過程中才會漸次被擴大與發酵。因此，繁星計畫政策分析，除了探討上位的理念思維，亦須對政策執行後的相關問題進行描述與解釋，始能周全政策之分析。
分析觀點係採取Dye所主張之見解，認為政策分析係「描述與解釋政府活動的原因與結果」，從制定、執行、以至於評估之三個階段的活動進行；分析架構則運用Fischer的政策質問邏輯(The logic of policy question)模式詮釋解釋。在政策質問邏輯分析架構中，經驗性資料包括計畫成果的驗證與政策目標確認，而規範性價值則包括政策目的辯護與社會價值選擇，前者屬於政策執行結果的分析與檢討，而後者則涉及政策價值的思辨與論述。
根據研究目的及發現，得出以下結論:
一、大學招生政策歷經多次變革，城鄉問題屢為關注重點，繁星致力縮短城鄉差距並帶動新興入學管道的發展，已為我國多元入學開啟歷史新頁
二、新課綱連動大學考招變革，未來大學考招新方案中，繁星計畫除學測考科及時程變革外，學測型態亦配合調整，政策方向有助落實新課綱精神
三、大學招生管道多元併進，各有優勢，惟相關作法未來可研議適度整合之可能性，俾招生作業能更專業化
四、繁星計畫在學校層級及社區層級較能落實公平教育理念；個人層級則未能彰顯公平性
五、校校等值屬齊頭式或水平式的公平，非差異化或垂直式的正義補償原則
六、繁星計畫在時程、經濟及人力成本上，整體而言較其他入學管道具效率
七、以學測成績為入學門檻，並由大學自訂門檻條件，較有利公立大學組織目標達成及效能提升
八、繁星計畫擴大學生來源的多元性，惟著重智育成績，選才向度仍不夠多元
九、高中建立適性輔導機制及教師適性教學能力，有助落實繁星政策理念
十、繁星計畫創造學生端、高中端以及大學端邁向卓越的三贏局面
十一、繁星計畫既強調適性發展，又重視校排名；既注重差異化的適性精神，也講究一致性的公平原則，凡此皆顯示政策目標間的矛盾性
十二、對未達學測門檻之偏鄉弱勢優秀生及長期存在的城鄉差距結構性問題，繁星管道所能發揮的功用仍然有限
十三、繁星計畫所衍生之非預期結果及問題，有待持續克服並精進發展；至於招生名額比率，未來應由招生專責單位整體規劃設算
十四、高等教育招生政策攸關人才培育，未來可參考國外相關作法，建立人才選拔機制，以真正落實人才培育目標
最後，根據研究發現及結論提出具體建議，分別提供教育行政主管機關、高中端及大學端未來精進推動入學制度及規劃相關作業之參考。本研究所提出之建議具體有價值，對未來大學入學管道的整合發展諒亦有貢獻。
The purpose of this study is to analyze the policy development and current status of the University Multi-Star Project. First of all, through the document analysis method, we will discuss the breadth and crosscutting aspects of policy development; second, focus group discussions and semi-structured interviews. Data collection methods and analysis includes objective concept of policy goals and actual administrative implementation effectiveness. The policy concept refers to the six policy indicators summarized in this study: Fairness, Efficiency, Effectiveness, Diversity, Appropriate , and Outstanding. Through the analysis and discussions of this research, we have in-depth analysis of the connotation of the Multi-Star Project policy and the concept goal of exposing it. We have found that all six indicators have their own ideality and direction, each indicator has its achievement or not fully implemented. As for the executive aspect of the administration, including the ratio of enrollment quotas, the reform of the admissions system, and the overall operational development, we mainly analyze and discusse practical issues. Although the administrative implementation issues are not directly under the policy itself, the goodness of the policy can only be gradually reflected in the implementation process of policy, the role and influence of the policy will only be gradually expanded and fermented during the implementation process. Hence, except for discussing superior conceptual thinking, the analysis of the Multi-Star Project policy must also be described and explaind the related issues after the implementation of the policy and can only start the analyze of comprehensive policy after it. The analysis point of view is based on the opinions advocated by Dye that the policy analysis “describes and explains the causes and results of government activities” from the three stages of formulation, implementation, and evaluation; the analysis framework uses Fischer's policy questions. The logical interpretation of the logic of policy questions. In the logical analysis framework of policy questions, empirical data includes review of the results of plan and confirmation of policy objectives, while normative values include policy objective defense and selection of social value. The former is the analysis and review of policy implementation results, while the latter involves speculation and discussion of policy value. Based on the research purposes and findings, the following conclusions are drawn: 1.The university’s admissions policy has undergone many changes. Urban and rural issues have repeatedly focused. Multi-Star Project has been committed to shortening the gap between urban and rural areas and stimulating the development of new entry channels. It has opened a new page for Taiwan’s multiple entry of education. 2.The new curriculum links university reforms, and the new university program will be contained new programs. In addition to time-course changes, the type of GSAT（General Scholastic Ability Test）will also be adjusted, and the new policy direction will help to implement the spirit of the new curriculum. 3.The university's enrollment channels are multifaceted and each has its own advantages. However, relevant practices may be developed in the future with appropriate integration and possibility to recruit more professional assignments. 4.The school level and community level of the Multi-Star Project can better implement the concept of fair education; but the individual level fails to demonstrate fairness. 5.The equal value between school and school are equality or Horizontal equity, not the principle of the compensation of difference or vertical equity. 6.Compared with other enrollment pipelines, the Multi-Star Project has efficiency in terms of time, economic and labor costs. 7.Taking the GSAT scores as the entry threshold, and universities can customize their threshold conditions, which is more favorable to organization of public universities goals and performance improvement. 8.The Multi-Star Project expands the diversity of student sources, but only focuses on intellectual achievements, which makes the selection of students is still not diversified. 9.High school established appropriate counseling mechanism and teacher's adequate teaching abilities, which helps to implement the star policy concept 10.Multi-Star Project creates a win-win situation for excellence in students, high schools, and universities. 11.The Multi-Star Project not only emphasizes adaptive development, but also attaches importance of school rankings; Also, focus on the principle of fairness and consistency, all of which show the contradiction between policy goals. 12.For those outstanding students who have not reached the threshold of the GSAT（General Scholastic Ability Test）and the structural problems of the long-standing urban-rural gap, the function of the Multi-Star Project is still limited. 13.Unexpected results and problems derived from the Multi-Stars Project need to be continuously overcome and refined; as for the ratio of enrollment quotas, the overall budget plan enrollment should be set and specific agency should take the responsibilities in the future. 14.Higher education enrollment policies are critical to the cultivation of talents. In the future, we could take other countries as reference. Establish mechanism of talent selection to truly implement the talent cultivation goal. Finally, based on research findings and conclusions, specific recommendations are made to provide reference for the education administration authorities, high schools and universities at the end to promote the admission system and related operations. The recommendations made in this study are of specific value and will contribute to the integration and development of future university admission channels.
The purpose of this study is to analyze the policy development and current status of the University Multi-Star Project. First of all, through the document analysis method, we will discuss the breadth and crosscutting aspects of policy development; second, focus group discussions and semi-structured interviews. Data collection methods and analysis includes objective concept of policy goals and actual administrative implementation effectiveness. The policy concept refers to the six policy indicators summarized in this study: Fairness, Efficiency, Effectiveness, Diversity, Appropriate , and Outstanding. Through the analysis and discussions of this research, we have in-depth analysis of the connotation of the Multi-Star Project policy and the concept goal of exposing it. We have found that all six indicators have their own ideality and direction, each indicator has its achievement or not fully implemented. As for the executive aspect of the administration, including the ratio of enrollment quotas, the reform of the admissions system, and the overall operational development, we mainly analyze and discusse practical issues. Although the administrative implementation issues are not directly under the policy itself, the goodness of the policy can only be gradually reflected in the implementation process of policy, the role and influence of the policy will only be gradually expanded and fermented during the implementation process. Hence, except for discussing superior conceptual thinking, the analysis of the Multi-Star Project policy must also be described and explaind the related issues after the implementation of the policy and can only start the analyze of comprehensive policy after it. The analysis point of view is based on the opinions advocated by Dye that the policy analysis “describes and explains the causes and results of government activities” from the three stages of formulation, implementation, and evaluation; the analysis framework uses Fischer's policy questions. The logical interpretation of the logic of policy questions. In the logical analysis framework of policy questions, empirical data includes review of the results of plan and confirmation of policy objectives, while normative values include policy objective defense and selection of social value. The former is the analysis and review of policy implementation results, while the latter involves speculation and discussion of policy value. Based on the research purposes and findings, the following conclusions are drawn: 1.The university’s admissions policy has undergone many changes. Urban and rural issues have repeatedly focused. Multi-Star Project has been committed to shortening the gap between urban and rural areas and stimulating the development of new entry channels. It has opened a new page for Taiwan’s multiple entry of education. 2.The new curriculum links university reforms, and the new university program will be contained new programs. In addition to time-course changes, the type of GSAT（General Scholastic Ability Test）will also be adjusted, and the new policy direction will help to implement the spirit of the new curriculum. 3.The university's enrollment channels are multifaceted and each has its own advantages. However, relevant practices may be developed in the future with appropriate integration and possibility to recruit more professional assignments. 4.The school level and community level of the Multi-Star Project can better implement the concept of fair education; but the individual level fails to demonstrate fairness. 5.The equal value between school and school are equality or Horizontal equity, not the principle of the compensation of difference or vertical equity. 6.Compared with other enrollment pipelines, the Multi-Star Project has efficiency in terms of time, economic and labor costs. 7.Taking the GSAT scores as the entry threshold, and universities can customize their threshold conditions, which is more favorable to organization of public universities goals and performance improvement. 8.The Multi-Star Project expands the diversity of student sources, but only focuses on intellectual achievements, which makes the selection of students is still not diversified. 9.High school established appropriate counseling mechanism and teacher's adequate teaching abilities, which helps to implement the star policy concept 10.Multi-Star Project creates a win-win situation for excellence in students, high schools, and universities. 11.The Multi-Star Project not only emphasizes adaptive development, but also attaches importance of school rankings; Also, focus on the principle of fairness and consistency, all of which show the contradiction between policy goals. 12.For those outstanding students who have not reached the threshold of the GSAT（General Scholastic Ability Test）and the structural problems of the long-standing urban-rural gap, the function of the Multi-Star Project is still limited. 13.Unexpected results and problems derived from the Multi-Stars Project need to be continuously overcome and refined; as for the ratio of enrollment quotas, the overall budget plan enrollment should be set and specific agency should take the responsibilities in the future. 14.Higher education enrollment policies are critical to the cultivation of talents. In the future, we could take other countries as reference. Establish mechanism of talent selection to truly implement the talent cultivation goal. Finally, based on research findings and conclusions, specific recommendations are made to provide reference for the education administration authorities, high schools and universities at the end to promote the admission system and related operations. The recommendations made in this study are of specific value and will contribute to the integration and development of future university admission channels.
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繁星計畫, 大學入學制度, 政策發展, 政策分析, 分析架構, University Multi-Star Project, college entrance system, policy development, policy analysis, analysis construction