我國幼托整合政策制定過程之研究

Abstract

「幼兒教育及照顧法」在民國100年通過後，解決了我國幼教界因為幼稚園與托兒所分流下所形成的問題，從民國86年開始推動的幼托整合政策也得以實行。回顧政策的制定歷程，可以發現我國的幼托整合政策歷經了三次制度架構的改變：幼兒園主管機關從內政部轉為教育部；國民教育向下延伸政策的暫緩；政策涵蓋範圍從零至十二歲轉為以二至六歲的幼兒園為主。除了制度架構的改變，幼托整合政策內涵也受到幼托公共化的訴求而變化。 本研究以政策體系的架構，從「外在環境因素」、「政策屬性」、「政策網絡」與「結構性因素」來解釋幼托整合政策制定過程中的轉變。 外在環境因素包含了國家對於幼教場域中角色定位的改變，也因此展開幼托整合政策的推動。在國家財政的限制之下，國幼班政策難以全面性施行，也使幼托公共化的訴求受到重視。政策屬性中，幼教思維的改變導致幼兒園主管機關的變動。政策目標的擴大，也使政策涵蓋範圍擴大至零到十二歲的整體規劃，但此項轉變卻是造成幼托整合政策立法延宕的主要原因。 政策網絡間，在政策制定的過程中，政府與民間團體的互動密切，讓不同主張的倡議團體都能對幼托整合政策發揮影響力。然而政府內部的網絡互動不良也造成了政策立法過程中的阻礙。結構性因素的改變加速了立法程序的進程，讓各界妥協優先通過以二至六歲為規範的「幼兒教育及照顧法」。 幼托整合政策在制定過程中最大的阻礙，在於政策目標範圍太大導致法案研擬實難以聚焦。雖然整合立法的立意良善，但在現實考量下，透過分立立法的方式讓法案制定更有效率。

The “ Early Childhood Education and Care Act” passed by the legislature in Taiwan in 2011. The child education-and-care problem from the used-to-be separate system between kindergartens and nursery school has transformed into an integrated kindergartens-nursery system. During the policy making process, the integrated kindergartens-nursery policy had been modified three times: A) The change of competent authority; B) The cease of national preschool education policy; C) the law has been changed from “Childhood Education and Care Act” to “Early Childhood Education and Care Act”. The policy change was not only reflected in the policy structure, the policy content was heavily affected by the idea of public governance of child care. This study tries to explain the integrated kindergartens-nursery policy change in the framework of the “policy system”, which includes “ external environment”, “policy attribute”, “institutional factor” and “policy networks”. The change of the government role is one of external environment factors, which caused the integrated kindergartens-nursery policy making. The limit of the government finance is another external environment factors, which was the main reason of the national preschool policy couldn’t comprehensive implement. Both of them leaded to the childcare of the public governance. The policy attribute includes the change of the child educare conception and the change of the policy goal. The first one led to the competent authority change, and the latter caused the policy scale expanded, which was the main reason prolonged the legislative process. As for the policy network, the benignity interaction between government and private sector allows the advocacy groups to affect the policy making. On the contrary, the interaction between government branches obstructed the policy making process. The institutional factor change was the key point to make the legislative process faster, and led to the birth of the “Early Childhood Education and Care Act”. The biggest problem of the policy making process was the ambition of the policy goal, which made the integrated kindergartens-nursery policy out of the focus. Integrated legislated was considered with good intention, but in reality, separate legislated could make the policy making process more efficient.