政策問題之形成位居政策運作過程的第一個階段，具有相當的重要性。以之為起始階段，從而方有後續之政策規劃、政策合法化、政策執行、政策評估等政策階段。十二年國民基本教育已於2013年開始實施，不僅是大規模的教育改革工程，其方向應為提升國民素質。本研究之重點在於探討十二年國民基本教育政策於政策形成階段，即須界定國內外環境因素與確立教育政策目標，換言之，應先對教育政策問題相關因素等進行確認，以利往後政策規劃階段之順利進行，並據此研擬有關解決教育政策問題的具體方案。

Policy problem formation is the first stage of the policy making process, with considerable importance. After the initial stage are policy formulation, policy legalization, policy implementation and policy evaluation. 12-year Basic Education has been implemented since 2013. It is not only a large-scale education reform project but also an enhancement of the national quality. This study focuses on the domestic and international environmental factors, as well as the education policy objectives. In other words, the study aims to identify the related factors, so as to develop a concrete program to solve problems in policy formation stage.