本研究採文獻分析法，旨在探討日本自由學校（フリースクール）的形成背景、發展脈絡與制度定位，並特別關注中輟特例校制度及日本文部科學省相關政策回應措施。研究結果顯示，日本近年不登校（拒學）與中輟學生人數持續上升，其成因涉及學習動機低落、校園霸凌、人際壓力、課程適應困難與疫情後復學不適等多重因素，使學校適應問題逐漸轉化為社會性議題，自由學校遂成為學校體制外的重要支援場域，為無法就學或蟄居在家的學童提供替代性學習與安置空間，其規模、課程與運作型態具有高度多樣性。在制度發展層面，日本政府一方面維持義務教育「教育機會均等」與基礎學力保障之核心理念，另一方面透過《構造改革特別區域法》所建立之教育特區與中輟特例校制度，以及《保障教育機會法》之立法，逐步承認多樣化學習活動與替代性教育場域的正當性，使自由學校得以在一定法制框架下運作，並獲得公共支持。此外，配合高中學費無償化政策與教育福利改革，日本亦嘗試在維持制度穩定與回應多元學習需求之間，尋求更具彈性的政策平衡。

This study adopts a documentary analysis approach to examine the historical background, developmental causes, and current status of free schools (フリースクール) in Japan, with particular attention to the establishment of “special schools for non-attending students” and the policy responses introduced by the Ministry of Education, Culture, Sports, Science and Technology (MEXT). The findings indicate that the number of non-attending and dropout students in Japan has continued to increase in recent years. This trend is associated with multiple factors, including low learning motivation, academic frustration, school bullying, psychosocial pressure, and difficulties adapting to school environments. As a response, free schools have emerged as alternative learning and support spaces for students who are unable or unwilling to attend formal schooling. These institutions vary widely in size, curriculum design, organization, and fee structure, but share the common goal of providing a safe place for learning, rest, and social connection. At the policy level, the Japanese government has sought to clarify and support the role of free schools through the Act on Securing Educational Opportunities Equivalent to Ordinary Education during the Compulsory Education Stage, which emphasizes the importance of diversified learning activities and appropriate learning environments for non-attending students. In addition, under the Special Zones for Structural Reform Act, local governments may establish “educational special zones” and special schools for non-attending students, thereby institutionalizing more flexible curricular arrangements within the compulsory education framework. These measures reflect an attempt to integrate free schools into a broader supportive system while maintaining the foundational principles of equal educational opportunity. Furthermore, Japan’s recent tuition-free policies for high schools and expanded financial assistance for private schools signify ongoing efforts to create a more inclusive and supportive educational environment for all students.