國小教師人力資源與教育經費供需系統之研究：系統動態學觀點

System Dynamics Approach to Supply-demand System of Human Resources and Educational Budget －a Case Study of Elementary Schools

王汝杰(wang ju chieh)

指導教授 ： 林新力

亞洲大學/資訊學院/資訊工程學系碩士班/碩士(2007年)

摘要

人力資源管理對於小學師資供需平衡是一個重要的課題。因為國民小學是國家培育健全國民與實施國民基本教育的場所，小學師資管理是否穩定平衡，攸關基礎教育品質與實施成效之良窳。因此國民小學人力資源供需規劃與縣市政府財務長期政策是一重要的議題。在二十世紀末，知識經濟隱然成形，各國政府莫不大力推動教育改革為之因應。台灣政府亦不例外，1994年以後，教育改革可說如火如荼在進行。但台灣在開放教育服務與轉型之多元化政策發展下，卻造成家長、學生及社會的反彈，學生的學習壓力並未因此而減輕。近幾年更面臨適齡學生入學人數負成長、都會區學校規模太大、偏遠地區迷你小學不具規模經濟面臨裁撤、私立小學快速增長，城鄉教育差距擴大、國民教育經費不足，屆齡教師無法退休，造成教師新陳代謝問題；加上師資培育過剩，形成龐大待業教師，及教改所延伸之問題，例如：經費不足壓力下部份縣市政府教育政策偏愛新聘代課教師以解決財政赤字，嚴重影響長期國民小學師資結構的發展，更不利於待業的流浪教師，小學師資體系面臨極大衝擊。在教育財政方面，台灣近十幾年來，教育經費在政府財政惡化下，編列明顯不足，後雖立法通過「教育經費編列與管理法」，使得各縣市之教育經費即地方教育發展基金，獲得較公平的補助與編列，但仍無法獲得需求的滿足，造成待退教師無法順利核退，待業教師無法進入職場的奇怪現象。另一方面，教師退休制度、退休條件與舊制退休金（恩給制）對教育經費與人力資源供需影響日益加劇，已到須徹底全面檢討地步。事實上，國小教師人力資源與教育財政供需系統是一複雜且動態的問題，諸如上述現象之各因素相互影響，須透過宏觀角度來探討，本研究運用系統動態學，建構小學教育師資人力資源與教育經費供需系統結構模式，以增加對系統行為的瞭解，並作相關政策之模擬與討論。

關鍵字

教育經費編列與管理法 ； 地方教育發展基金 ； 系統動態學、師資培育、 教育政策

並列摘要

Human resources management is a critical issue for supply and demand in elementary schools where strong and healthy citizens will be nurtured and educated. A steady condition of supply-demand decides educational quality and its performance. Thus, human resources planning and long-term budgeting of local governments are hot topics. In late 20th century, knowledge-based economy emerged, which drove authorities all over the world to make educational reforms. Taiwan is with no exception. Though educational reforms have been advocated everywhere in Taiwan since 1994, learning pressure of students still shows no signal of decreasing due to the setbacks from the parents, students and society under the new policy of diverse educational services . In recent years, educational system has to cope with some dilemma as follows：
1. Number of students in the right age decreases.
2. Schools in urban areas expand too much.
3. Schools with no economy of scale in rural areas will be scrapped possibly.
4. Private schools grow fast.
5. Gap between urban and rural areas enlarges.
6. Budget of compulsory education is deficient.
7. Teachers who can not retire because of budget deficiency lead to human resources disequilibrium.
8. An excess of qualified teachers bring more wandering teachers.
9. In addition, educational reforms also generate some problems. Part of local governments decides to recruit substitute teachers as replacement in order to solve financial difficulty, which seriously influences human resources structure of elementary schools.
With regards to educational finance, budget deficiency in education is obvious over the past decades. Though the legislature has passed “the Act of Educational Budgeting ad Management”, helping “regional education development fund” subsidized more equally, either teachers eager to retire earlier or desperate to teach are dissatisfied. On the other hand, retirement system such as requirements, pension under the old regulations should be examined totally because of its increasing influence on supply-demand system of budgeting and human resources. Actually, such system should be discussed more widely because of its complexity and dynamic characteristics. This article is to use system dynamics as a model to construct a supply-demand structure of these two dimensions under the interaction of the above factors in order to have a better understanding of systematic behavior and simulate related policies.

並列關鍵字

The Act of Educational Budget and Management ； Regional Educational Development Fund ； System Dynamics、Teacher Education、Educational Policy

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