台灣政經轉型下之制度變遷-子計畫二---社會福利民營化下福利服務輸送之變遷

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Title:	台灣政經轉型下之制度變遷-子計畫二---社會福利民營化下福利服務輸送之變遷
Other Titles:	The Political, Economic Transition and Institutional Change in Taiwan
Authors:	吳秀照,高迪理,王篤強 Wu, Shiou-Chao;Kao, Ti-L i;Wang, Duu-Chiang
Contributors:	行政院國家科學委員會東海大學社會工作學系
Keywords:	社會福利民營化、服務輸送、方案委託 Welfare privatization;Service delivery;Program Contracting
Date:	2008
Issue Date:	2011-06-16T06:11:01Z (UTC)
Abstract:	本研究係國科會三年期整合型計畫之子計畫，執行期間自95年8月至98年7月。本研究第一年從歷史制度論的學理出發，透過文獻蒐集與中央政府首長訪談，探索我國社會福利民營化政策制定與制度發展的推進歷程以及影響制度發展與變革的關鍵因素。第二年藉由問卷調查及焦點團體座談，探討地方政府如何落實社會福利民營化的政策執行以及與民間委託單位的互動關係。第三年則透過問卷調查，瞭解社會福利民營化的制度運作對民間福利組織與其服務輸送各層面的影響。第一年的研究中，我們從福利民營化的演進歷史中，將福利民營化的進程約略分成三個階段：社會福利民營化的啟動期、社會福利民營化準市場發展期以及社會福利民營化邁向市場擴展期。這三個階段的發展，可以發現我國福利民營化從第一階段的政策宣示與實驗階段，走向第二階段的政策明確化與福利服務「準市場化」的發展方向，再進展到第三階段的「市場化」與「多元化」的委外方向。在第三階段中央政府透過法令與制度規範強力主導福利民營化的作為下，原先負責執行福利政策的地方政府，開始大幅度的將各項福利業務發包、下放給民間機構執行。對照西方國家福利民營化試圖解決公部門福利供給者在資訊不對稱、代理懈怠(agent slack)、和官僚自利導致福利生產成本居高不下等問題，我們第二年的研究卻發現臺灣福利民營化實踐過程中恰恰與西方「代理人理論」(principal-agent theory)中預期藉此限制官僚自主性的期待相左。換言之，臺灣的福利民營化運作上，雖然政府將許多資源釋出由民間執行第一線的服務輸送，但在政府與受委託機構的權力位置與關係上，政府非但沒有減少介入的範圍，反而加大了官僚行政裁量的空間。在上述的制度結構與關係下，第三年我們試圖瞭解承包政府委託方案的民間機構在組織與服務輸送上到底受到哪些影響與變動。而研究發現，至少半數以上的民間機構在民營化制度的實施歷程中，其組織的構成要素多有增長或擴大的趨勢。而在服務構成要素上，組織需要不斷在服務輸送各個層面有所改變，以因應政府部門在此一政策落實方面所要求之各項規定。顯然，從民間機構觀點，民營化有助於民間機構的生存與擴展，然而，政府招標與評核制度的僵化，卻限縮了社會工作專業服務對象的多元差異所需要的因應彈性，最終權益受損者將有可能是第一線的服務提供者與服務對象。其結果對社會工作專業發展的影響值得深入觀察。面對現行福利民營化制度在深度與廣度的全面擴展，制度與執行層面造成委託與受託雙方遭遇挫折的障礙必須不斷檢討和改進，政府部門和民間機構方能發揮良性合作關係，共創雙贏局面。 This three-year research project was conducted form August 1, 2006 to July 31, 2009. We adopted the analytic framework of historical institutionalism, to examine the institutional development under welfare privatization and its impacts on social service delivery systems.In order to explore the development process of welfare privatization in Taiwan, the major research work of the first year was to collect data through literature review and four in-depth interviews with the top managers of welfare bureau of the central government. The progress of welfare privatization in Taiwan, from the data analysis, could be roughly divided into three stages:1.Initiating stage(from the beginning of 1980s to the beginning of 1990s); 2.Developing to the quasi-market stage(from the beginning of 1990s to the end of 1990s); 3.Expanding to the market stage(from the end of 1990s till now). The initial result finding led us to understand the policy and political context of welfare privatization in Taiwan. In the second year research, through survey questionnaires and focus group discussions with local government representatives, we found that the central as well as the local governments had contracted out various social service programs to non-profit organizations and even some commercial firms. We tried to explore whether the privatization of social services had expanded the autonomy of local agencies and limited the power of the local bureaucrats to pursue self–interests, as the “principal-agent theory” had argued. However, we found that, on the contrary, even extended the discretion power of government officials when contracting service delivery programs to the third sector. Our third year survey research with the agencies conducting service delivery to the disabilities and the elderly found that, from the positive side, more than half of the local agencies responded that welfare privatization had helped to expand their organizational configuration, service scope as well as client number, etc. However, in order to fulfill the regulations or the requirements of the contracts, they had to adjusted their service delivery (in terms of service types, costs and manpower, etc.) flexibly. There were also negative impacts as well. The influence of welfare privatization to the development of the social work profession need to be further concerned.
Relation:	研究編號：NSC95-2745-H029-013-HPU 研究期間：2008-08~ 2009-07
Appears in Collections:	[社會工作學系所] 國科會研究報告

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