尋找政策改變/停滯的因素—臺灣延長國教政策之歷史制度論分析

Abstract

本研究探討1983年至2011年上半年間臺灣的延長國教政策，採取歷史制度論觀點，描繪該段期間的政策發展歷程，探究政策改變/停滯的因素。本研究認為「國民教育學制」自從1968年實施九年國民義務以來，儘管在歷史發展時序中，可以分成八個發展時期，但整體而言，並未出現跨越制度變革的關鍵轉折點，國民教育學制的發展呈現路徑依賴現象。

儘管國民教育學制並未改變，每隔一段期間就會出現政策倡議，原因包括該學制改革被賦予的政策理念轉變且增多，被期許為諸多教育問題的解套，特別是升學壓力的改善；部分實施條件的改變，如學校數量增多、少子化等；更關鍵的是政策菁英的理念、政治考量加上推動時機的配合，政策就可能浮出檯面。過去二十多年，共計出現六次學制變革的契機點，雖未促使國民教育年限延長為九年以上，但隨之轉向「次」制度的開展，以此回應學制面臨的挑戰，每一次契機點的次制度轉向，又影響下一個相關政策的推動內涵，於是，次制度愈發蔓生的枝芽，限縮了各次制度其他方案的選擇，加上入學制度、學校類型、學校品質、經費等實施十二年國民教育的關鍵環節問題，長期以來未被根本解決，使得延長國教政策的發展路徑逐漸限縮於非免費、非免試、非強迫的十二年國民基本教育。

前述關鍵環節問題未被解決的原因又可歸因於，技職教育與普通教育政策的擺盪，強化了制度的回饋遞增；民主化後的教改運動未臻目的且引發對基進改革的質疑；政治生活的特性、官僚體制、政務官任內的決策考量，促使政策的消極不作為；學區劃分的困境未被解決；教育經費預算的有限與排擠效應等。在前述問題解決條件未臻成熟前，延長國教政策路徑依賴的情形可能持續存在。The purpose of this study is to explain why the extension of nine-year compulsory education policy, though been proposed as the policy agenda several times in past twenty-eight years (1983-2011), but fail to be implemented. Historical intuitionalism was used as the perspective for analysis. Concepts such as path dependence and historical legacy can explain the stagnations of the policy. Findings of the study are as follows. The development of the extension of nine-year compulsory education policy can be divided into eight periods. During these periods, there was no change regarding the length of the nine-year compulsory education, which can be defined as the main institution since 1968. Path dependence remains as the key factor explaining the lack of significant change in the extension of nine-year compulsory education. In each policy advocacy, new sub-institution was proposed as the solution for implementing the extension of nine-year compulsory education policy in 1990, 1994, 2000, 2003, 2007, 2011. At the same time, the development of the sub-institution restricted the choice of main institution. In the newest period, extension of nine-year compulsory education policy was redefined as a for-fee, non-compulsive twelve-year basic education policy. Budget constraints as well as the long-existing dilemma of school district division also contribute to the stagnation of the extension of nine-year compulsory education policy. Significant change is unlikely to happen and stagnation will continue due to path dependence.