公私協力機制之探討 : 以台灣石化工業為例

淡江大學機構典藏 > 商管學院 > 公共行政學系暨研究所 > 學位論文 > Item 987654321/33953

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题名:	公私協力機制之探討 : 以台灣石化工業為例
其它题名:	The analysis of the mechanism of public-private collaboration : the case of Taiwan's petrochemical industry 公私協力機制之探討 : 以臺灣石化工業為例
作者:	李怡萱;Li, Yi-hsuan
贡献者:	淡江大學公共行政學系公共政策碩士班陳恆鈞;Chen, Hen-chin
关键词:	公私協力;夥伴關係;石化工業;公私協力機制;public-private collaboration;partnership;petrochemical industry;the mechanism of public-private collaboration
日期:	2006
上传时间:	2010-01-11 04:42:54 (UTC+8)
摘要:	當今台灣石化工業面臨諸多發展限制與困境，以致石化工業相關總產值占製造業產值三分之一的榮景不再；惟石化工業攸關民生必須品、支援現代消費性電子元組件、拓展海外商機與搶佔大陸市場等事實不可忽視，故須積極輔導發展。由政府主導石化政策與建廠計畫的時代，在台塑企業集團著手籌畫六輕之際終於劃下休止符，取而代之的是擁有強大資本的民間業者主動籌建石化廠計畫；是以，政府石化政策的制定與執行，在在顯現出須將業者意見納入政策過程之必要性。儘管業者已具備籌建大型石化計畫之能力，然擁有國家資源配置以及具有政策工具運用權力者，仍為政府所獨有；在石化業之產業特性下，僅單方向仰賴業者籌建，仍不足以完成石化計畫。準此以觀，目前石化計畫的規劃與執行，即是同時需要政府與業者協力共同達成之時。本文藉由協力相關理論的探討，提出「公私協力機制」分析架構，再輔以深度訪談與檢視國內現有石化政策的制定，檢視當今政府、石化業者與其他政策利害關係人之互動情形，是否具備建立公私協力機制的要件；苟不具備構成機制的要件，公私雙方行動者應如何強化要件加以改善。本文建立公私協力機制之目的，乃期望此機制可發揮功能，成為解決石化工業發展問題之途徑。研究發現：（一）業者與政府之間具有順暢的溝通管道，向政府尋求資源協助時，也可找到協調問題的對口單位與對象；（二）政府納入業者意見制定政策之轉變，以及政府與業者的密切互動，有益公私雙方協力關係之建立；然而，政府雖在發展石化政策上扮演重要角色，卻因能力以及部分政策工具誘因不足，導致石化業發展停滯；（三）若有爭議事件阻礙石化計畫之進行，亦有石化公會出面與其他關係人協調。本文研究內容顯示當前建立公私協力機制之優勢與不足之處，因此，研究建議應強化理論架構中的要件，以求建立更完整之機制，達到順利決策與運作計畫之目的：（一）決策要件已具備，建議公私雙方應維持長期互動關係；（二）政府應更明確指出政策目標與執行標準，並多舉辦正式討論場合，達到運作要件規範之內容；（三）公私雙方之間不具規範要件，因此無法順利排除執行計畫所遭遇之阻礙，故必須以「協議」規定計畫執行內容，以及確認行動者該負之責任，包括政府公權力之確實執行；（四）道德要件的缺乏，不但使政治與個人因素介入計畫成為阻礙，更使行動者在計畫執行時，容易流於猜忌及不願付出，這些皆是影響協力活動成效之因。 Currently petrochemical industry in Taiwan meets many limitations in development and difficulties. In the past, the total output value of petrochemical industry accounted for one third of the entire manufacture industry. Glory products have gone. We cannot ignore that petrochemical industry is significantly related to the daily necessities, supports modern consumer electronic components, expands overseas markets and grabs the market in China. Therefore, it is necessary to advance petrochemical industry actively. The era of government leading petrochemical policies and plant making came to an end When Formosa Plastics Group prepared the sixth program. It is replaced by the private operators with immense capital to actively build petrochemical plants. As a result, it is necessary for the government to take opinions of private businesses into consideration when planning and executing petrochemical policies. Although the private sector has the ability to build large petrochemical plants, national resources and policy tool still belong to the government. Under the characteristics of petrochemical industry, private businesses are unable to complete the program single-handedly. Thus planning and execution of petrochemical programs require collaboration of the government and private businesses at the same time. With collaboration related theories discussion, the researcher proposes the analysis structure of the Mechanism of Public-Private Collaboration with in-depth interviews and reviewing current petrochemical policies. The study reviews the interaction among actors such as the government, petrochemical business operators and other actors involved, whether the conditions of the mechanism of public-private collaboration are available. If not, how shall both the public and private sectors enhance the conditions? The purpose of establishing public-private collaboration mechanism in this study is to have the mechanism develop the function to serve as a way to solve petrochemical industry problems. The findings are as follows: 1) the government and business operators have smooth communication channels. The former are able to find the proper contact when seeking resources from the government. 2) Change of the government to accept business operators’ opinions when planning policies and the close interaction of the two helps build the collaboration relationship between the two; yet, although the government plays an important role in developing petrochemical policies, the petrochemical industry development is stagnation due to incapability of the government and insufficient incentives of some policy tools. 3) In the event of controversies blocking proceeding of petrochemical programs, the Petrochemical Association can negotiate with actors. The findings show the advantages and insufficiencies of current establishment of the mechanism of public-private collaboration. Therefore, the study suggests conditions of the analysis structure be enhanced in order to establish a more comprehensive mechanism and achieve the goals of successful policies and program operations: 1) decision conditions are available and both the public and private sectors are suggested to maintain a long-term interaction relationship. 2) The government shall be more specific in the policy goals and execution standards, and hold more formal discussions to meet content of operation conditions. 3) The two sectors do not have normative conditions. Barriers of the program execution can not be removed as a result. “Agreement” is required to specify the program execution content and ensure the responsibilities of the action takers, including the duly execution of government public power. 4) Lack of moral conditions does not only make intervention of political and individual elements obstacles but also make action takers suspicious and unwilling to give when executing the programs. All these factors affect the results of collaboration activities.
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