嘉義市地方權力結構與教育治理關係之研究

The Relation between Local Power Structure and Governance of Education in Chia-yi City

張震宇

指導教授 ： 王麗雲博士

國立臺灣師範大學/教育學院/教育學系/碩士(2007年)

摘要

過去我國縣市層級的教育權限實質掌握在台灣省教育廳手中，1997年修憲凍省以及1999年公佈的《教育基本法》與《地方制度法》促使教育走向分權化。地方政府較過去承擔了更重大的教育責任。教育專業控制的降低，使地方權力在教育事項上獲得更大的運作空間。為瞭解地方權力結構與教育治理間的關係，本研究以嘉義市為例分別探討嘉義市地方權力結構及教育治理的現況、嘉義市地方權力結構與教育治理之關係，以及在此權力結構下地方教育發展的特徵。
本研究主要參考D. J. McCarty與C. E. Ramsey以及J. H. Spring對於美國學區權力結構與教育治理關係之研究。該研究發現學區權力結構影響教育局長的角色及學區教育重點，並指出美國學區權力結構分為四種類型：1.寡權支配型；2.派系分裂型；3.多元型；4.靜態型。
本研究採用個案研究法，以聲譽調查獲得教育治理菁英名單並瞭解教育治理菁英在不同層面教育事項的影響力；以聲譽抽樣選擇嘉義市熟悉本議題之地方人士，包括一般行政人員、教育行政人員、教育實務人員、民意代表、教育壓力團體、學者、記者等地方人士進行訪談。
本研究發現嘉義市地方權力結構主要由政治世家所構成，政治世家之間的競爭並不明顯，其中以執政達20年的許家班影響力最大。2005年市長選舉形成政黨間的競爭，惟輪替之初政黨競爭尚不明顯，許家班仍具可發揮影響力，故本研究認為嘉義市權力結構仍屬於寡權支配型態。此外，嘉義市教育治理主要由市長主導且教育治理菁英以行政人員為主，其他背景人士影響力小。在地方權力結構與教育治理的關係上，本研究的發現包括：1.政治傳統為寡權支配；2.地理特徵減少衝突發生的可能；3. 地方文化重視升學與教育並跨越派系界線；4.市長可主導教育發展的投入與重點；5. 局長為功能性執行者；6.地方透過體育單項協會提供議員補助款。此權力結構下地方教育發展的特徵包括：1.積極發展資優教育，為升學準備；2.穩健保守理性的教育發展。

關鍵字

地方權力結構 ； 地方教育治理

並列摘要

Until 1999, the authority of local education was held by Education Office of Taiwan Province. Educational Fundamental Act and Local Government Act enacted in 1999 caused the decentralization of education. The reduction of professional control brings local government more space in education affairs. This thesis investigated current local power structure and governance of education in Chia-yi City, relations between them, and the characters of educational governance among the power structure.
According to D. J. McCarty, C. E. Ramesy, and J. H. Spring, power structure in school district would affect the role of superintendent and the development in education. There are four models of local power structure in school district: dominated, factional, pluralist and inert.
This thesis adopted reputation investigation to find out the list of educational elite and their influence in different education affairs. The sample of this research includes general administrators, educational administrators, school educators, city councilors, educational interest group, scholars, and journalists.
Local power structure in Chia-yi City was constructed by political families. The competition among political clans was not obvious. The Shu family had governed the city for over twenty years, and was the most influential elite in Chia-yi City. The mayor election in 2005 was the campaign ran two parties, although the competition between parties was far from mature. Thus this research suggested that local power structure in Chia-yi was as dominated model. The governance of education in Chia-yi primarily conducted by the mayor, and the elite in education was mostly the education administrators, and elite from other territories can barely have the influence. There are six findings in the relation between local power structure and governance: 1.the politics tradition in Chia-yi was dominated model, 2.the geography factor reduced the potential conflicts, 3.local cultural context emphasize academic education and beyond faction bounderies, 5.the superintendent was a functionary, 6.city councilors can get grants from single sports associations. And there were two characters in educational development: 1.promot gifted education for academic preperation, 2.educational development was in terms of steady, conservative, and reasonable.

並列關鍵字

local power structure ； governance of education

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