我國地方教育行政組織與校長的權力互動研究—Foucault權力觀之分析

Abstract

傅柯（Michel Foucault）是影響當代思潮甚鉅的哲學家，其從系譜學的方法出發，考察日常中的原則規範如何與無所不在的權力產生互動，以及權力如何影響一個人對事物的理解、認知與日常實踐。傅柯對權力、知識與主體性的研究分析，與對權力的重新界定與問題化意識與生存美學的進路，帶給我們看待生活中權力關係與互動另一個視角。本文主要探究地方教育行政組織與校長間權力互動，從傅柯的權力論述出發，透過個案研究法與研究者長期在教育行政場域的觀察，並輔以文件分析與深度訪談，分析兩者間權力關係、影響權力互動的因素、權力運作策略，以及權力互動產生的效果。研究發現主要如下：一、地方教育行政組織與校長間的權力關係部分，可發現權力互動媒介的形式可分為「正式」與「非正式」兩大類。權力關係有伴隨組織架構而生的關係、伴隨行政委託衍生的關係，以及更大範疇的人際網絡架構等。透過媒介與關係的分析，除了顯示教育場域中權力運作的複雜性，正式與非正式機制的交互影響，也可發現權力關係是一個動態的體系，每次的權力互動都是與其他社會成員連結的延伸，且在特定的脈絡下，每個局部的權力關係都有不同的樣態，也啟發吾人對權力的看法應更開放，不僅限於支配、威權或統治等傳統概念，而是應視之為散佈於社會空間中的微小實踐。二、在影響地方教育行政組織與校長權力的互動因素上，可發現懲罰、規訓、知識與治理術在權力互動中的運用與實踐。教育場域的懲罰多透過對校長的例行年終考核與校長遴選進行，而實際的懲罰效果則會受到督學訪視、會議宣示與非正式溝通管道的影響。規訓手段的施行也更為細緻與隱秘，並融入地方教育行政組織與校長間的日常生活與關係脈絡中。知識與權力的互動上，地方教育行政組織通常透過督學、年終考核等觀察與登記手段，累積並構成校長的個人檔案與綜合評價，再連結校長遴選以產製真理。而校長則是會透過人際網絡、政治策略等第三方力量，影響知識產製結果。但上開權力效果均是局部的，且在我國教育政治治理模式下，會隨著人際網絡，如縣市首長更迭而改變。最後，治理術係透過校長主任遴選、甄選等方式調控，在校長個體層級透過建立高層次治理目標、關懷校長內心需求與福祉等手段實施。面對教育局處治理與權力互動的反抗上，校長反抗動機分為爭取資源與對抗政治干擾，策略則分別有主要透過人際網絡來影響教育局處的資源分配或決策，以及回歸校務與人際網絡經營，強化自身權力關係能量。三、影響校長與地方教育行政組織互動因素部分，可爬梳出「校長養成過程行政倫理觀念的植入」、「甄選與儲訓過程的潛移默化」與「師範機構養成背景」等生命史的經驗對權力互動的影響，並形成校長與教育局處權力互動的基礎。此外，於看待權力的角度與對權力脈絡的理解，可發現校長與教育局處均傾向視權力為具體物來進行權力互動，容易落入權力關係混淆，價值判斷困難的困境。四、權力運作策略上，可發現在校長與地方教育行政組織的日常權力互動中，校長可運用的權力關係途徑較教育局處多，且權力運用策略靈活，會隨著爭取資源的屬性，而搭配不同關係和策略的運用，達成獲取人力、遴選學校位置、經費或反抗治理的效果。而教育局處因具有組織層級與掌握考核、經費的優勢地位，許多權力運作策略則多透過體制內的校長會議、甄選、儲訓等例行行政流程來達成治理校長的權力效果，而無須透過外部權力關係。本研究最後並提出傅柯權力理論在臺灣教育場域運用之反思，如以自我關懷為核心解構校長遴選制度、重新檢視地方教育行政組織治理目標、轉向權力脈絡分析理解與實踐、關注生命史對權力互動之影響、鼓勵踰越情感與生存美學態度等建議，期能對地方教育場域在權力互動與策略的運用上，協助地方教育行政組織與校長在日常繁忙的教育行政事務與日漸紛雜的教育環境中，用更正向與開放的角度看待權力互動，並保持批判與實踐反抗的勇氣。Michel Foucault, a philosopher of significant influence on contemporary thought, starts his examination from the genealogical method, exploring how principles and norms in everyday life interact with pervasive power, and how power influences an individual's understanding, cognition, and daily practices. Foucault's analysis of power, knowledge, and subjectivity, along with his approach to redefining power and problematizing consciousness and aesthetics of existence, offers people another perspective on understanding power relations and interactions in life. This article mainly explores the power interactions between local educational administrative organizations and principals, starting from Foucault's discourse on power. Through case study methods, long-term observations in the educational administration field by the researcher, document analysis, and in-depth interviews, it analyzes the power relationships between the two, factors influencing power interactions, strategies of power operation, and the effects of power interactions. The main findings of the research are as follows:1.Power Relationships Between Local Educational Administrative Organizations and Principals: The forms of power interaction media can be divided into"formal" and "informal" categories. The power relationships arise from organizational structures, administrative delegation, and broader interpersonal network structures. Through the analysis of media and relationships, besides showing the complexity of power operations in the educational field, the interplay of formal and informal mechanisms reveals that power relationships are dynamic systems. Each power interaction extends to connect with other social members, and in specific contexts, each local power relationship has different forms. This inspires a more open view of power, not limited to traditional concepts like domination, authority, or governance, but as small practices distributed in social spaces.2.Factors Influencing Power Interactions: Punishment, discipline, knowledge, and governmentality are utilized and practiced in power interactions. Punishments in the educational field are mainly carried out through routine year-end assessments of principals and the selection of principals, while the actual effects of punishment are influenced by supervisor visits, meeting declarations, and informal communication channels. Disciplinary measures are more detailed and covert, integrated into the daily life and relational context between local educational administrative organizations and principals. In the interaction of knowledge and power, local educational administrative organizations usually observe and record through supervisors and year-end assessments, accumulating and forming personal files and comprehensive evaluations of principals, which are then linked to the selection of principals to produce truth. Principals, on the other hand, influence the results of knowledge production through interpersonal networks, political strategies, and other third-party forces. However, these power effects are local, and under the educational political governance model in Taiwan, they change with interpersonal networks, such as changes in county and city leaders. Finally, governmentality is regulated through the selection and recruitment of principals, and at the individual level of principals, it is implemented through high-level governance goals, caring for principals' inner needs and welfare. In terms of resistance to the governance and power interactions of educational bureaus, principals' motivations for resistance are divided into resource acquisition and opposition to political interference. Strategies include influencing the allocation of resources or decisions of educational bureaus through interpersonal networks and returning to school affairs and interpersonal network management to strengthen their power relationship energy. 3.Factors Influencing the Interaction Between Principals and Local Educational Administrative Organizations: The process of administrative ethics implantation in the training of principals, the subtle influence during the selection and training process, and the background of normal schools' training all influence power interactions, forming the basis of power interactions between principals and educational bureaus. Moreover, in terms of perspectives on power and understanding power contexts, it is found that both principals and educational bureaus tend to view power as a tangible object in power interactions, easily falling into the confusion of power relationships and the dilemma of value judgments. 4.Power Operation Strategies: In the daily power interactions between principalsand local educational administrative organizations, principals have more power relationship channels available and flexible power utilization strategies. These strategies vary with the nature of resource acquisition, using different relationships and strategies to achieve effects such as obtaining manpower, selecting school positions, funding, or resisting governance. The educational bureaus, due to their organizational level and advantageous position in holding assessments and funding, achieve power effects of governing principals through routine administrative processes such as principal meetings, selection, and training without the need for external power relationships.Finally, the study reflects on the application of Foucault's power theory in the educational field in Taiwan, offering suggestions such as deconstructing the principal selection system with self-care at its core, re-examining the governance goals of local educational administrative organizations, shifting to power context analysis for understanding and practice, focusing on the impact of life history on power interactions, and encouraging the transgression of emotions and attitudes of the aesthetics of existence. These suggestions aim to assist local educational administrative organizations and principals in viewing power interactions and strategy applications in a more positive and open manner amidst the busy educational administrative affairs and increasingly complex educational environment, while maintaining the courage to critique and practice resistance.