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題名:地方政府教育官僚執行教育政策裁量行為之分析
作者:蕭芳華
作者(外文):Hsiao, Fang-ua
校院名稱:國立臺北大學
系所名稱:公共行政暨政策學系
指導教授:吳清基
學位類別:博士
出版日期:2001
主題關鍵詞:裁量權地方教育官僚政府間關係政策執行政策規則能力政策執行類型discretionlocal education bureaucratgovernmental relationshippolicy implementationpolicy regulative capabilitypolicy implmentative pattern
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  政策執行情形影響政策結果,裁量行為影響政策執行成效。本文主要研究焦點在於政府間政策執行過程中地方政府官僚的裁量行為,期以了解裁量行為在政策執行過程中扮演的角色。採個案分析研究方式,檢視民國八十二年至八十六年間「中央補助地方國民教育設施計畫」甲、乙兩縣執行的模式與過程,以證實「裁量行為」對政策執行成效的影響。
  本文企圖從政策執行研究文獻中,分析建構裁量行為的角色與特質。全文計分為六部分。第一章說明研究主旨,以及所採用相關概念的界定;第二章探討政策執行過程中裁量權具有政策再修正的意義;執行者對政策的認知、利益算計、和執行意向,左右其執行行為;建構出一個政策執行裁量範圍分析架構。第三章分析執行者裁量行為標準傾向為「彈性」和「適當性」,而執行者人格特質也對裁量行為傾向產生影響。第四章針對「中央補助地方國民教育設施計畫」內容和甲、乙兩縣執行作描述性分析。第五章說明研究的設計內容和實施過程,並從訪談結果分析甲、乙縣教育局長執行的特色,印證前面所提出的推論。
  本文第六章陳述主要的結論為:從應用性分析發現,(一)地方教育官僚的裁量行為因發揮政策再設計的效果,在政策執行過程中扮演關鍵地位。(二)除了政策內容外,地方系絡主導勢力也是影響教育局長裁量行為的主要因素。政策內容要素中,執行者對規劃手段、上級的課責、與規則能力等的覺知,影響其裁量範圍的判斷。尤其,縣市長為地方系絡中優勢的主導勢力,對局長的裁量行為形成支持或限制的效用。(三)局長的裁量行為標準以「彈性」和「適當性」為主,以「教育專業性」、和「報效鄉土」等為輔。(四)局長積極的人格特質應對裁量行為的發揮有正面關係,包括政治性能力、非物化和互為主觀的思考模式、和課責來源等。
  「中央補助地方國民教育設施計畫」內容明確,資源龐大。政策設計因對縣市政府授予執行目標選擇和學校資源分配優先順序的裁量權,使得原僅3%緊急統籌款的裁量,擴大為實質上連97%也納入範圍。局長對上級政策規劃品質和規則能力的認知,影響其裁量行為的傾向。較接近的課責來源,例如對其擁有任命權之縣市長,對局長的裁量行為,產生較直接的牽制作用。
 The way the policy implemented affects the result of policy and the discretional behavior affect the policy effectiveness. The purpose of the thesis is to analyze the discretional behavior of the educational bureaucracy in local government. The method adopted is reviewing two local governments'' policy implementation of the "The plan of Central government grants for the construction of local nine-year compulsory education schools", to prove what we have hypothesized.
 The ambition of this study tries to construct the role and characteristic of the behavioral discretion in the field of policy implementation studies. The content was divided into six parts. In the 1st chapter, the research plan and conception definitions were presented. After the literature review, in Second and Third chapters the researcher established the hypothesis that bureaucrat''s discretional behavior adapted the policy, that bureaucrat implemented basing on his way of purpose recognition, and that a structure for analyzing discretion space was constructed for application. In Chapter Four, there was the reconstruction of the two local governments'' implementation of the Plan. Chapter Five explains the research design and discusses what have been found through the data got form the deep interview.
 In Chapter Six comes the conclusion of the study.
   1.The local education bureaucrats'' discretional behavior did adapt the policy, and play a key role within the procedure of policy implementation.
   2. Besides the policy content factors, the main directing forces in local context are also the key factors affecting the discretional behavior. The factors of policy contents include the implementing method planned, the accountability required, and the rule enforcement. How these factors perceived by the bureaucrat decides his space to behavior discreetly. Especially, the mayor was the main directing force in local context, and his power did limit or support the scope of bureaucrats'' discretion.
   3.The main criteria that the bureaucrat set for his own discretional behavior are "flexibility" and "appropriateness". Educational profession and local loyalty are the secondary ones.
   4.The positive characteristics of the bureaucrat should have some good effect on his eagerness to exercise the discretion authority. It depends whether he has owned the political capability, non-materialization, and interactive subjective way of thinking.
 The content of "The plan of Central government grants for the construction of local nine-year compulsory education schools" was clear. It offered marvelous resources. The policy designed that local government had the discretion power to objective choices and priority setting, which turn out that the discretion space had been greatly enlarged. The bureaucrat''s perception of policy design quality and enforcement did affect his intention to discreet. The closer the resources of accountability, the greater power it affects.
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