國民中小學校長遴聘政策執行之研究

A study the impkemwntation of elementary and junior high school principal selection policy

陳寶山(Chen Pao-San)

指導教授 ： 梁恆正博士

國立臺灣師範大學/教育學院/教育學系/博士(2001年)

摘要

摘 要
本研究的主要目的，首先是探討校長遴聘政策的時代背景及政策執行模式，其次是探討現行校長遴聘政策執行的問題，並分析其執行的結果，了解標的團體參與校長遴選的感受和經驗，最後根據研究結論提出建議，供改進校長遴聘政策執行之參考。經由相關文獻之分析與深度訪談之實施，歸納研究結論如下︰
一、就政策執行的背景而言，我國國民中小學校長遴聘政策，其政策立法在立法院經教育、法制、財政三個委員會的少數立法委員審查後提報院會快速通過，相關法令未能同時修正或調適，亦無相關配套措施，以致此政策之執行引起適法性爭議，也出現許多值得探討的問題。
二、就政策執行的模式而言，我國國民中小學校長遴聘政策之執行，牽涉到中央政府與地方政府之間，以及遴選委員、標的團體、家長會、教師會、和學校行政人員之間的互動關係，係一複雜的動態過程。
三、就對標的團體的衝擊而言，現行國民中小學校長遴聘政策的執行，因受訪的校長候選人條件不同，境遇有別，而有其獨特的經驗感受與因應方式。
四、就政策執行的層面而言，現行國民中小學校長遴聘政策，在遴選委員、遴選過程、教育視導、轉任機制、資料查證、校長分級、權責調適、配套措施等方面未臻完善，而影響政策執行的成效。
五、就參與遴選的準備而言，現行國民中小學校長遴聘的競爭激烈，校長候選人常需掌握制勝因素，用心準備遴選資料和積極經營人際關係，以贏得校長的職位。
六、就掄才的政策目標而言，現行國民中小學校長遴聘政策的執行，受遴選委員專業不足、遴選過程不客觀、未兼顧整體教育、以及校長候選人常以勝選為考量等因素的影響，並未能達成為學校選出合適校長的政策執行目標。
七、就對現職校長的影響而言，現行國民中小學校長遴聘政策的執行結果，校長候選人基於遴選的現實考量，將以「人際導向」取代「專業導向」，積極營造有利遴選的公共關係，以贏取或確保校長職位。
八、就校長辦學的專業而言，現行國民中小學校長遴聘政策的執行結果，在校務運作、校長辦學態度、校長專業成長、辦學績效等方面，對校長辦學的專業成長具有積極正面的功能。
九、就學校教育的發展而言，現行國民中小學校長遴聘政策執行的結果，在參與層面、教師心態、家長態度、權力運作、遴選風紀等方面，對學校教育的發展產生不利的影響。
根據上述結論，本研究提出下列建議︰
一、在政策執行模式上，國民中小學校長遴聘政策的執行，宜加強遴選委員、標的團體、家長會、教師會、和學校行政人員等組織間的互動學習與調適機制。
二、在政策執行措施上，國民中小學校長遴聘政策的執行，在遴選委員、遴選程序、配合措施、遴選風紀等方面宜謀求改善，以達成政策執行的目標。
三、在政策執行運作上，國民中小學校長遴聘政策的執行，宜建構遴選委員、家長會、教師會和學校行政人員權責相符的運作模式與規範。
四、在教育人力資源運用上，宜建立校長人才資料庫。
五、在校長專業成長上，宜增強校長候選人的生涯規劃能力。
六、在優質校園文化塑造上，宜加強校長的策略運用、人際溝通與理性對話能力。
七、在教育專業尊重上，宜制定家長參與校務和行使權力的合理規範。
八、在維護候選校長的權益上，宜成立校長遴聘政策執行的申訴管道。
九、後續研究的建議
﹙一﹚研究對象方面
可以擴及其他縣市，參與校長遴聘政策執行的遴選委員、家長會代表、教師會代表、學校行政代表、教育主管機關代表等人員為研究對象。
﹙二﹚研究方法方面
可以採用其他質的研究方法，如個案研究、現象學方法、詮釋學方法、俗民誌方法等，去探討在校長遴聘政策執行，對標的團體行為模式改變的獨特性與複雜性，使其生活經驗以整體呈現其本質，以及對學校教育影響的現象本質和啟示。
﹙三﹚研究議題方面
可以對校長遴聘政策進行分析，包括政策問題、政策規劃、政策合法化、與政策評估等議題，以及開展公共政策論述的空間，形成公共論述氣氛，提供更重要的啟示。
關鍵字︰校長遴聘、政策執行、標的團體

關鍵字

校長遴聘 ； 政策執行 ； 標的團體

並列摘要

A study on the implementation of the elementary and junior high school principal selection policy
ABSTRACT
The major purpose of this research focused on the implementation issues of school principal’s selection policy in Taiwan. It is divided into three parts. Firstly, it probes into both background of the times and modes of the implementation on principal selection policy. Secondly, it is to study issues of the implementation of current policy for principal selection and also analyses the outcome of the implementation so as to understand the feeling and experiences of the target groups who participate in the implementation of principal selection. Lastly, it elaborates several suggestions in accordance with the findings of this research and put those as references for the improvement of principal selection policy implementation. Through analysis on relative documents and in-depth interviews, the conclusions are summed up as follows:
1). With reference to the background of the policy implementation, the principal’s selection policy appeals to the national goal of educational reform, sharing power and participations, the transformation of the role of principals as its rationale. However, the legitimation of the policy was examined by the educational committee, the legal committee and the financial committee. These contain just few members of the Congress. Yet the bill was passed to the law by the Assembly. Relative regulations had not been revised or adjusted, not to mention the complete set of measures. So the implementation of this policy leads to the arguments of its legality. Results of the implementation problems are also emerging, which are of worth, further research.
2).With reference to the mode of policy implementation, the implementation of the principal selection policy in our country involves the interactions between central government and local government and also those between selection committee members, target groups, PTA, Teachers Association and School Administers. The procedures are thus a complex dynamic process.
3).With reference to the pounding at target group, due to the differences of prerequisite and environment of the principals interviewed, each has his unique feeling over the experience and way of reaction to the implementation of current principal selection policy.
4).With reference to the level of policy implementation, the insufficiency over the selection of committee members, the procedures, the inspections on achievement, the organism of transferring, the examination of information, the classification over principals, the accommodation of duties and the supporting measures influence the progress of the implementation of the policy.
5).With reference to the preparation of participating in the selection, it shows an excessive competition in current principal selection. The candidates try to hold dominant factors by preparing the requested information very diligently and working hard on the management of human interrelationship for winning the position.
6).With reference to the goal of the policy for recruiting talent persons, current implementation of principal selection seems not to achieve this goal due to the influences of insufficient professionalism of the committee members, unfairness of the selection procedures, and the candidates’ taking being elected as the only factor considered.
7).With reference to the influences to the current principals, the implementation of the current selection policy leads to the following results: the replacement of “professionalism” with “human relationship”, concentration on public relations which are favorable to selection so as to win or ensure the position of principalship.
8).With reference to the practice of school education, the implementation of the current selection policy leads to the results: the operation of school affairs, the principal’s attitude toward running the school, the principal’s maturity of professionalism and also his achievements, all of those which of positive functions on the promotion of school education.
9).With reference to the development of school education, the implementation of the current selection policy leads to the results: the level of participation, teachers’ mood, parents’ attitudes, the operations of authorities, conducts of the selection, all of these emerge negative influences on the development of school education.
According to the above conclusions, this research puts forward the following
suggestions.
1).With respect to the mode of policy implementation, the implementation of the selection policy should reinforce the organism of interaction and adjustment among committee members, target groups, PTA, Teacher’ Association and school administrators.
2).With respect to the measures of policy implementation, the implementation of the selection policy should seek to improve the selection of committee members, the coordinate measures, and the discipline of selection to achieve the goal of the policy.
3).With respect to the operations of policy implementation, the execution of the selection policy should establish a mode and norm of power and responsibility for the operations of committee members, PTA, Teachers’ Association and school administrators.
4).With respect to the utilization of educational human-power, a data bank of principal’s talent should be established.
5).With respect to the professional maturity of principal, the ability of career planning of the principal candidates should be enhanced.
6).With respect to the molding of high quality campus culture, the abilities of strategy application, inter-communication and rational dialogue of the principals should be strengthened.
7).With respect to showing honor to the educational professionalism, reasonable norms should be established to formulate the ways for parents to attend the school affairs and perform their rights.
8).With respect to upholding the rights and interests of human loving care, channels for appealing should be set up for the execution of principal selection.
9).With respect to suggesting for further researches, there are:
(a). Expanding the subjects of the study--
The committee members of principal selection; PTA;
Teachers’ Association; school administrators and
representatives of educational authority of other counties
might be included as the subjects of the study.
(b). Elaborating the methods of the study--
Other methods of qualitative research can be adopted, such
as: case study;phenomenology approaches; hermeneutics
approaches; ethnography approaches etc. to research the
uniqueness and complexity of the influences that the
implementation of principal selection policy has affected
the target groups.
(c). Scrutinizing the policy issues--
The research problems might be deepened: to analyze the
principal selection policy which includes the issues of
policy problems; policy formulation; policy legitimation
and policy evaluation.
Key words : principal’s selection, implementation policy, target group

並列關鍵字

principal's selection ； policy implementation ； target group

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