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    題名: 英國政府治理模式變革之研究
    作者: 劉坤億
    Kun-i Liu
    貢獻者: 孫本初
    江岷欽

    Ben-chu Sun
    Min-chin Chiang

    劉坤億
    Kun-i Liu
    關鍵詞: 治理
    治理能力
    新公共管理
    新右派
    西市敏寺型式改革
    governance
    governability
    new public management
    new right
    Westminster- style reforms
    日期: 2000
    上傳時間: 2009-09-18 17:02:35 (UTC+8)
    摘要: 一九八○年代迄今,對英美語系和歐陸等先進工業民主國家的政府部門而言,是一個治理模式變革的年代。值得注意的是,這一波政府改革運動的持續力和影響層面是歷史上少見的,驅動改革的相關理念亦有脈絡可循,並且已經浮現出若干明顯的新治理模式。可惜的是,這一波政府改革風潮雖然有著許多不同而動人的稱號(如新公共管理運動、政府再造運動),以及眾多令人目眩神迷的改革策略(如顧客導向的服務、簽約外包、組織精簡等),但是針對各類新的治理模式或各種改革方略所進行的分析及評估卻不多。本文將嘗試由治理(governance)概念發展出一套評估性的分析架構,以作為檢驗這些新的治理模式或改革策略的工具。這一套評估性的分析架構包括三個部分:治理工具的選擇、治理過程的互動關係及治理能力的評估指標。

    目 錄
    第一章 導論 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥1
    第一節 研究動機與目的 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥2
    第二節 研究方法與途徑 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥8
    第三節 研究範圍與流程 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥11
    第四節 治理概念的界定 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥13
    第五節 研究限制 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥19
    第二章 西敏寺型式的改革 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥22
    第一節 西敏寺民主模式的特徵及其困境 ‥‥‥‥‥‥‥‥‥‥‥‥22
    一、西敏寺模式的主要特徵 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥22
    二、西敏寺模式的困境 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥24
    第二節 柴契爾革命的背景 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥29
    一、經濟和社會的壓力 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥30
    二、政治和行政的困局 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥34
    三、歐洲化的衝擊 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥35
    四、柴契爾個人的意志 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥37
    第三節 新右派的改革理念 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥37
    一、自由主義和保守哲學 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥38
    二、奧地利學派和芝加哥學派 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥40
    三、公共選擇理論 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥42
    四、管理主義 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥49
    第四節 保守黨政府的改革行動 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥53
    一、改革紀事(1979-1997) ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥53
    二、改革歷程及其重點 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥57
    第三章 治理概念的分析架構 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥60
    第一節 治理概念途徑的內涵 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥60
    一、治理概念的七種用法 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥60
    二、治理和新公共管理之間的差異 ‥‥‥‥‥‥‥‥‥‥‥‥‥64
    三、治理概念的五個命題 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥66
    第二節 治理工具的類型 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥71
    一、從政策工具到治理工具 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥71
    二、四種治理工具 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥72
    三、四種治理工具的比較 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥77
    第三節 治理關係的層次 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥79
    一、從政府統治到多層治理 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥79
    二、三個層次的治理 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥81
    第四節 治理能力的指標 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥85
    一、善治的參考指標 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥85
    二、動態指標的建構 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥88
    第五節 研究架構的提出 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥92
    第四章 財務管理改革 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥94
    第一節 績效責任導向的財務管理 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥94
    一、效率稽核 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥95
    二、財務管理方案 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥96
    三、市場測試 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥98
    四、績效責任審計 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥99
    五、強化會計功能 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥101
    第二節 治理工具的選擇 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥102
    一、層級節制為體,市場機制為用 ‥‥‥‥‥‥‥‥‥‥‥‥‥103
    二、官僚經驗與管理文化的變革 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥104
    第三節 治理過程的互動關係 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥109
    一、官僚與廠商的競爭 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥109
    二、內部審計重於外部審計 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥111
    三、中央集權與地方分權的拉鋸 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥112
    第四節 治理能力的評估 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥114
    一、從政治理性出發的問題診斷 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥114
    二、柴契爾優越的統理能力 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥115
    三、仍須強化的回應力 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥116
    四、改革效益大於改革成本 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥119
    第五章 組織結構的變革 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥124
    第一節 市場模式的組織結構 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥124
    一、民營化 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥125
    二、續階計畫 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥127
    第二節 治理工具的選擇 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥133
    一、從層級節制到市場機制 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥133
    二、組織經濟學的論證 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥135
    第三節 治理過程的互動關係 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥138
    一、國家空心化(hollowing-out) ‥‥‥‥‥‥‥‥‥‥‥‥139
    二、行政執行機關與部會的互動關係 ‥‥‥‥‥‥‥‥‥‥‥‥140
    第四節 治理能力的評估 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥144
    一、特定系絡下的問題診斷 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥144
    二、梅傑與柴契爾在統理能力上的比較 ‥‥‥‥‥‥‥‥‥‥‥145
    三、回應力與反作用力 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥147
    四、效益遞減、成本遞增 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥148
    第六章 文官制度調整 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥152
    第一節 人力資源管理取向的文官制度 ‥‥‥‥‥‥‥‥‥‥‥‥152
    一、富爾頓報告的遺緒 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥153
    二、人事行政機關的改組 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥155
    三、雇用制度的變革 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥157
    四、訓練制度的發展 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥163
    五、文官員額精簡 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥166
    第二節 治理工具的選擇 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥167
    一、從人事管理到人力資源管理 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥168
    二、人力資源管理的內涵 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥170
    三、策略性人力資源管理的省思 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥171
    第三節 治理過程的互動關係 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥173
    一、部長責任制與文官政治中立 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥173
    二、政治控制與文官特權 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥174
    三、續階計畫與行政課責 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥175
    四、核心主管部門與高級文官的決策角色 ‥‥‥‥‥‥‥‥‥‥177
    第四節 治理能力的評估 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥179
    一、難以周全的問題診斷 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥179
    二、梅傑與柴契爾在統理態度上的比較 ‥‥‥‥‥‥‥‥‥‥‥181
    三、遲來的回應力 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥182
    四、潛在的成本與潛在的效益 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥183
    第七章 結論 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥187
    第一節 研究發現 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥188
    第二節 研究建議 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥200
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    Giddens, Anthony原著,鄭武國譯(1999),《第三條路:社會民主的更新》,台北:聯經。
    Giddens, Anthony原著,李惠斌、楊雪冬譯(2000),《超越左派右派:激進政治的未來》,台北:聯經。
    Hayek, F.A.原著,夏道平譯(1993),《個人主義與經濟秩序》,台北:遠流。
    行政院研考會(1996)
    Hayek, F.A.原著,謝宗林、黃耀輝、陳元保、承立平譯(1995),《不要命的自負:社會主義的種種錯誤》,台北:遠流。
    Hobsbawn, Eric J.原著,鄭明萱譯(1996),《極端的年代》,台北:麥田。
    Hughes, Owen E.原著,林鐘沂、林文斌譯(1999),《公共管理新論》〈第二版〉,台北:韋伯。
    Ingraham, P.W. and B. Guy Peters原著,喻銘鐸譯(1989),「各國文官改革難題之比較分析」,收錄於《憲政思潮》,87期,頁86-94。
    Lepage, H.原著,夏道平、馬凱、林全、吳惠林譯(1988),《自由經濟的魅力:明日資本主義》,台北:天下文化。
    von Mises, Ludwig原著,夏道平譯(1991),《人的行為〈上、下〉》,台北:遠流。
    Nordlinger, Eric A.原著,蕭全政譯(1988),《民主國家的自主性》,台北:國民大會憲政研討委員會。
    Peters, B.Guy原著,許道然、劉坤億、熊忠勇、黃建銘譯(2000),《政府未來的治理模式》,台北:智勝。
    Pfeffer, Jeffrey 原著,譚天譯(2000),「有關薪酬的六個危險迷思」,收錄於《哈佛商業評論:人力管理》,台北:天下文化。
    Wilhelm Ropke原著,夏道平譯(1991),《自由社會的經濟學》,台北:遠流。
    《行政革新與公共部門轉型研討會實錄》,台北:行政院研考會。
    Roskin, Michael G.原著,鄭又平、侯漢君、姚朝森、黃烈修、郭正亮、陳恆鈞、陳銘祥等譯(1999),《各國政府與政治:比較的觀點》,台北:韋伯。
    三、英文部分
    Ackoff, R.L. (1993) `Corporate Perestroika: The Internal Market Economy`, in W.E. Halal, A. Geranmayeh and J. Pourdehnad (eds), Internal Markets: Bring the Power of Free Enterprise Inside Your Organization, pp.15-26. New York: John Wiley & Sons.
    Arnold, P.E. (1995) `Reform`s Changing Role` Public Administration Review, Vol.55, No.5, pp.407-417.
    Atkinson, Rob and Savage, Stephen P. (1994) `The Conservatives and Public Policy`, in S.P. Savage, R. Atkinson and L. Robins (eds), Public Policy in Britain, pp.3-14. London: MacMillan.
    -- (1994) `Changing Styles of Governance since 1979`, in S.P. Savage, R. Atkinson and L. Robins (eds), Public Policy in Britain, pp.31-52. London: MacMillan.
    Aucoin, Peter (1995) The New Public Management: Canada in Comparative Perspective. Montreal: Institute for Research on Public Policy.
    -- and Heintzman, Ralph (2000) `The dialectics of accountability for performance in public management reform` International Review of Administrative Sciences, Vol.66, pp.45-55.
    Baltodano, A.P. (1997) `The study of Public Administration in Times of Global Interpenetration : A Historical Rational for a Theoretical Model` Journal of Public Administration Research and Theory, Vol.7 No.4, pp.615-638.
    Barberis, Peter (1995a) `The Civil Service: continuity and change` Public Policy and Administration, Vol.10 No.1, pp.3-15.
    李長晏(1999)
    -- (1995b) `The Civil Service From Fulton to Next Steps and Beyond- Two Interpretations, Two Epistemologies` Public Policy and Administration, Vol.10 No.2, pp.34-51.
    Barberis, Peter (ed.) (1997) The Civil Service in an Era of Change. Aldershot: Dartmouth.
    Barlow, John, Farnham, David and Horton, Sylvia (1996) `Britain` in David Farnham, Sylvia Horton, John Barlow and Annie Hondeghem (eds), New Public Managers in Europe, pp.100-124. London: Macmillan Press.
    Barzelay, M. (1992) Breaking Through Bureaucracy: A New Vision for Managing in Government. Berkeley: University of California Press.
    Bergman, Michael and Lane, Jan-Erik (1990) `Public Policy in a Principal-Agent Framework` Journal of Theoretical Politics, 2(3), pp.339-352.
    Blais, Andre and Dion, Stephane (eds) (1991) The Budget-Maximizing-Bureaucrat: Appraisals and Evidence. Pittsburgh: University of Pittsburgh Press.
    Blom-Hansen, Jens (1997) `A "New Institutional" Perspective on Policy Networks` Public Administration, Vol.75 No.4, pp.669-693.
    Bogason, Peter and Toonen Theo A.J. (1998) `Introduction: Networks in Public Administration` Public Administration, Vol.76 No.2, pp.205-227.
    Borzel, Tanja A. (1998) `Organizing Babylon- On the Different Conceptions of Policy Networks` Public Administration, Vol.76 No.2, pp.253-273.
    Boston,J., Martin, J., Pallot, J. and Walsh, P. (1996) Public Management: The New Zealand Model. Auckland: Oxford University Press.
    《我國中央與地方府際關係分析:英國經驗之學習》,國立政治大學公共行政學系博士學位論文。
    Boston, Jonathan, Dalziel, Paul and John, Susan ST (eds) (1999) Redesigning the Welfare State in New Zealand: Problems, Policies, Prospects. Auckland: Oxford University Press.
    Bouckaert, G. and Pollitt, C. (1995) Quality Improvement in European Public Services. London: Sage.
    Box, Richard C. (1999) `Running Government Like a Business: Implications for Public Administration Theory and Practice` American Review of Public Administration, Vol.29 No.1, pp.19-43.
    Bozeman, Barry (ed.) (1993) Public Management: The State of the Art. San Francisco: Jossey-Bass.
    Brady, Christopher and Catterall, Peter (1997) `Managing the Core Executive` Public Administration, Vol.75 No.3, pp.509-529.
    Brereton, Michael and Temple, Michael (1999) `The New Public Service Ethos: An Ethical Environment for Governance` Public Administration, Vol.77 No.3, pp.455-474.
    Broadbent, Jane and Laughlin, Richard (1997) `Evaluating the "New Public Management" Reforms in the UK: A Constitutional Possibility?` Public Administration, Vol.75 No.3, pp.487-507.
    de Bruin, Gert P. (1987) `Economic theory of bureaucracy and public good allocation` in Jan-Erik Lane (ed.), Bureaucracy and Public choice, pp.32-62. London: Sage.
    Buchanan, J.M. (1975) The Limits of Liberty: between anarchy and Leviathan. Chicago: Chicago University Press.
    -- and Wagner, R.E. (1977) Democracy in Deficit: The Political Legacy of Lord Keynes. New York: Academic Press.
    李明寰(1998)
    -- (1978) From Private Preferences to Public Philosophy: The Development of Public Choice. London: Institute of Economic Affairs.
    描述: 博士
    國立政治大學
    公共行政研究所
    85256501
    89
    資料來源: http://thesis.lib.nccu.edu.tw/record/#B2002000106
    資料類型: thesis
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