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題名:準公共化的誕生:台灣托育政策走向規範性市場的推力與分化
作者:王兆慶
作者(外文):WANG, CHAO-CHING
校院名稱:國立中正大學
系所名稱:社會福利研究所
指導教授:王舒芸
學位類別:博士
出版日期:2022
主題關鍵詞:托育準公共國家中心論關鍵交集制度變遷路徑依賴childcarequasi-publicstate-centered theorycritical conjunctureinstitutional changepath dependence
原始連結:連回原系統網址new window
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本文從理念、行動者、制度如何影響政策形成的理論觀點,採取介乎於詮釋與歷史典範的質性研究進路,探討台灣的準公共化托育政策何以出現,又為何分化成0-2歲及2-6歲兩種截然不同的模式。
準公共化源於台南市的私幼公立化,私幼公立化則是從公共化幼兒園及教保券兩種制度之間形成的堆疊式變遷。變遷背後的動力,是決策者認定供給端補助有助規範托育市場的強烈信念,以及台南市政策設計完成、賴清德轉任行政院長,所偶然形成的歷史時序關鍵交集。
台南市政策影響行政院政策的過程中,決策者和民意代表共享的信念是,他們想像中的家長需求是支持新政策的。所以利益團體雖然強烈反彈,但反對意見並未形成政策的否決點。最後,2-6歲托育擁有三成公共化的制度遺產,0-2歲卻無。這不僅造成教育部與衛福部公共化施政意願的差異,準公共化的定位在兩個部會之間也因而有別。
研究結果顯示,政策理念並不需要倡導聯盟也可以形成托育政策的推力;國家中心的行動者,對準公共化政策形成的影響力格外重要;舊托育制度的漸進變遷和路徑依賴,在政策發展的不同階段發生,也分別形塑了兩種準公共化的面貌。
This research aims to explore and analyze the emergence of the quasi-public childcare policy in Taiwan and its two divergent divisions: systems for children under 2 years old and for those from 2 to 6. Embarking from the theoretical approaches that explain how ideas, actors and institutions shape and formulate policies, this research takes on a qualitative methodology bridging hermeneutics and historical paradigms.
The quasi-public childcare system stems from private-childcare-going-public policy in Tainan City, which emerged from institutional change of layering between two old systems - public childcare and early childhood education voucher. The driving force behind those changes came from the strong belief of policymakers in that supply-side subsidy would contribute to a regulated market. Simultaneously, upon the completion of Tainan City’s policy design, then Mayor of Tainan City, Lai Ching-Te, was soon appointed as the Premier. The political coincidence hence created an unprecedented historical critical conjuncture.
As the policy of Tainan City worked its way into the Executive Yuan, the belief jointly held by both policymakers and legislators was that the new policy enjoyed an imagined support base of parents. Therefore, even the strong opposition launched by interest groups was not able to constitute a veto point against the policy. Meanwhile, the childcare system for children from 2 to 6 enjoys a thirty percent market share of public preschools as institutional heritage, but the system for children under 2 does not entitle to the same privilege. Eventually the divergence does not only result in the inter-ministerial difference in promoting such policy, the Ministries of Education and of Health and Welfare are even inconsistent in defining quasi-public childcare.
As the research shows, the formation of advocacy coalitions is not the necessary condition to formulate the driving force for ideational childcare policy. The state-centered actors can wage tremendous influences on this process. On the other hand, the gradual institutional changes and path dependence at various stages of this policy formulating process led to two divergent facets of quasi-public childcare policy.
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