政策倡導聯盟架構分析我國國民小學小校整併政策之研究

A Study on the Analysis for the Small School Consolidation Policy in Taiwan by Advocacy Coalition Framework

本研究係透過「政策倡導聯盟架構」理論、文獻分析法與資料蒐集法，分析我國偏鄉小校整併政策形成過程與現況，再藉由探討美國、日本、澳洲等國小校整併政策來對照。從政策導向學習、政策菁英系統、以及政策次級體系三方面來分析該政策形成與執行的過程。研究發現：（一）專家學者介入之政策導向學習並未影響小校整併政策的目標。（二）代表政策菁英系統的教育部之核心信仰並未因外界輿論或重大事件而產生變化，仍舊堅持執行小校整併政策。（三）本案以縣市政府為代表之政策掮客並無助於解決小校整併政策引發的衝突，甚至最後成為整併政策的執行者。再者，就中央、地方政府、學校與社區居民家長三種利害關係人在小校整併過程中政策信念的內涵與變遷而言：中央（行政院、監察院、教育部）在過程中整併小校以節省教育經費的核心信念從未改變，縣市政府和家長均因資源限制而產生信念改變。今日小校轉型與整併政策的實施與現況，可謂縣市政府和學校社區家長等次級系統產生的政策導向學習相互影響的結果。 This study aims to analyze the rural small school consolidation policies in Taiwan, meanwhile discussing such policies of small schools in America, Japan, Australia as a contrast. The methodology involved the theory of Advocacy Coalition Framework, document and data analysis. The findings reveal that (1) The policy-oriented learning by expert intervention doesn’t influence small school consolidation policies. (2) The core beliefs of the Ministry of Education, which represents the policy elite system, have not changed due to outside opinions or major events. (3) Policy hackers represented by the county and city governments do not help resolve conflicts caused by small school consolidation policies. They even become the executors of the consolidation policy. In terms of the connotation and changes of policy beliefs among the three stakeholders of the central government, local governments, schools and community residents in the process of reorganization of small schools, the core beliefs of the central government to save education funds have never changed, while county and city governments and parents have changed their beliefs due to resource constraints. The implementation and current status of the transformation and consolidation policies of today's elementary schools is the outcome of the mutual influence of policy-oriented learning generated by subsystems such as county and city governments and parents and communities.