班班有冷氣政策決策與執行過程之研究－以政策窗觀點

Abstract

本研究選擇以John Kingdon 於1984年所提之「政策窗模型理論」（Policy Window Theory）觀點分析「班班有冷氣」政策決策與執行過程。學校裝設冷氣議題存在多年，過去長年皆由地方政府各自因地制宜辦理，為何中央政府選擇在2020年7月時主動介入並主導「班班有冷氣」政策，並在2022年4月完成全國22縣市、3,584所國中小學的電力系統改善工程、18萬6,064臺冷氣裝設，以及9萬847間教室中EMS建置的政策目標，當中的轉折與契機是促使筆者研析之動機。 本研究範圍為2017年至2022年間的政策推動與政策執行之過程，結合政策窗模型理論就「班班有冷氣」政策進行分析，包含問題流的盤整、政策流解決方案的浮出、政治流的推力、三流交匯促成政策窗的開啟，以及政策企業家在當中所扮演的關鍵角色；透過文獻分析法與深度訪談的研究方法，訪談當中關鍵決策者，以第一人視角了解各關係人在過程中的態度、如何突破多年來公認的學校冷氣裝設三大困境，以及政策窗中三種流程與政策企業家是如何影響政策決策與執行，乃至其後政策延續之探討，有助於作為未來探討類似政策變遷時之參考。 研究發現，政策窗模型有利於詮釋本政策的成功推動與執行。在問題流部分，各界對校園環境的訴求，從「安全」提升到「舒適」，提供了「班班有冷氣」政策方案的推動基礎；在政策流部分，創新的採購模式與公私協力的合作方案，為過去政策推動的困境提供良好解方；在政治流部分，中央地方政府由上而下的介入，以及專案小組的督導，也成功化解過往的政治阻力；此外，由時任行政院長蘇貞昌與副院長沈榮津作為政策推動與執行過程中的政策企業家，透過完善的事前配套，將不同團體納入對話，而有效凝聚共識更是重要推力，使得「班班有冷氣」政策之政策窗得以開啟，並實踐跨部會資源整合與合作。 最後，本文亦針對政策未來發展提出建議。「班班有冷氣」政策在短期內應優先確立穩健財源，確保政策延續；同時，就冷氣的使用準則做更精進之規範；中長期則應就2030年將面對的冷氣汰換潮預作因應，並持續探究環保與節約能源的權衡。

This study examined the decision-making and implementation of the "Air-Conditioning in Every Classroom" policy from the perspective of John Kingdon's policy window theory (1984). The issue of installing air-conditioning in schools has existed for many years, with local governments handling it individually to adapt to local conditions. In July 2020, the central government decided to intervene and lead the "Air-Conditioning for Every Classroom" policy. By April 2022, the policy’s goals were achieved, including the completion of power system improvements across 3,584 elementary and middle schools in 22 counties and cities nationwide, the installation of 186,064 air-conditioning units, and the establishment of energy management systems in 90,847 classrooms. The motivation for this study stems from the pivotal moments and opportunities that led to these developments. The scope of this study encompassed the policy promotion and execution processes from 2017 to 2022. Utilizing the policy window theory, this study analyzed the "Air-Conditioning for Every Classroom" policy. This analysis included the consolidation of the problem stream, the emergence of solutions within the policy stream, the driving forces of the political stream, the coupling of these three streams leading to the opening of the policy window, and the crucial role played by policy entrepreneurs. Literature analysis and in-depth interviews with key decision-makers were performed to gain a first-person perspective on the attitudes of various stakeholders throughout the process. Investigations were made regarding how they overcame the three long-standing challenges associated with installing air-conditioning in schools, how the three streams within the policy window and the policy entrepreneurs influenced policy decisions and implementation, and the continuity of the policy. Thus, a reference was created for future explorations of similar policy changes. The policy window theory effectively explained the successful promotion and implementation of the "Air-Conditioning for Every Classroom" policy. In the problem stream, the demands for the school environment shifted from "safety" to "comfort," providing a foundation for promoting this policy. In the policy stream, innovative procurement models and public–private partnership solutions addressed the previous challenges in policy promotion. In the political stream, top-down intervention by the central and local governments, along with supervision by project teams, successfully mitigated past political resistance. Furthermore, the roles of Premier Su Tseng-chang and Vice Premier Shen Jong-chin as policy entrepreneurs during the promotion and implementation of the policy were crucial. Their comprehensive pre-implementation arrangements, which included incorporating various groups into the dialogue to effectively build consensus, were profound driving forces. These efforts facilitated the opening of the policy window and the realization of interdepartmental resource integration and cooperation for the "Air-Conditioning for Every Classroom" policy. Finally, this study offers recommendations for the future development of the policy. In the short term, the "Air-Conditioning for Every Classroom" policy should prioritize securing stable funding to ensure its continuity. Simultaneously, more refined regulations regarding air conditioner usage should be established. In the mid to long term, preparations should be made for the anticipated wave of air conditioner replacements in 2030, and ongoing exploration of the balance between environmental protection and energy conservation should be conducted.