私立學校退場條例政策制定之脈絡分析：「勞方」與「資方」論述對法案形成的影響

A Contextual Analysis of the Formulation of Private School Closure Policy: The Influence of the Discourses Between “Labor” and “Management”

本研究的目的在探究《私立高級中等以上學校退場條例》制定的脈絡分析，剖析勞方與資方核心論述的爭點和差異，及其對法案制定的實質影響。本研究以S. J. Ball的「政策週期」作為研究分析架構，研究分析資料採用文件分析法，並以2014-2022年可以公開取得的次級資料為主。本研究主要的結論：一、退場條例從政策制定到實踐，為國家霸權與能動性兩者相互滲透影響的結果。二、勞方與資方對制定退場條例的核心論述爭點，在「私立學校設立背景」、「私立學校經營不善原因」與「賸餘校產歸屬」三個議題有不同的政策主張。三、由於董事會過去長期的負面形象，讓政府在退場條例的價值配置從自主性走向公共性，並經由「解散董事會」和「校產充公」的手段，切斷其在政治、經濟與社會資本流通、轉換及累積的可能性。四、由於私立學校內部缺乏互信基礎的勞資關係，造成退場條例的政策制定是一場「沒有贏家」的政治角力與論述競逐。

This study aims to analyze the context of the formulation of private school closure policy under the Act Governing the Closure of Private Educational Institutions at Senior Secondary or Higher Level. This study also aims to demonstrate the differences and disputes in the core discourses between labor and management and the substantial impact on the formulation of the policy. Stephen J. Ball’s “policy cycle” is used as the research and analysis framework, while the document analysis method is adopted as the research method. This study gathers secondary data published from 2014 to 2022. This study’s main conclusions and implications are: 1. From its formulation to implementation, school closure regulation is a result of the mutual penetration and influence between national hegemony and agency. 2. Labor and management have different policy propositions on three issues: “the background of the establishment of private schools,” “the reasons for the bad management of private schools,” and “the ownership of private school property.” 3. Due to the negative image of the board of trustees in the past, the government’s value in the school closure regulation has changed from autonomy to publicity. “Dissolving the board of trustees” and “confiscating school property” are the measures the government takes to cut off private schools’ possibility of circulating, transforming, and accumulating political, economic, and social capital. 4. Due to the lack of mutual trust between labor and management within private schools, the policy formulation of the school closure regulation has “no winners” in the arguments and political competition.