公共服務模式之興替：以西門商圈街道家具治理為例

Analyzing Governance Modes and Shifts: A Case Study of the Pedestrian Sidewalk Area for Street Furniture, Ximending District, Taipei, Taiwan

政府當局為何及如何選擇特定的治理模式？政府治理模式的演進是否吻合主流文獻（如新公共服務、協力公共管理）的倡議或主張？學者們經常提到政府治理模式至少有三種比較明確的類型，並主張「信任導向的協力治理」會比「競爭導向的市場治理」與傳統的「權威導向的層級治理」更具有相對優勢。此外，根據新制度經濟學與契約管理的文獻看法，「交易成本」與「市場競爭」很可能影響到治理模式的選擇。遺憾的是，公共管理實務中欲找到這樣一個歷經「多元治理模式」的個案並不容易，以致於研究者殊難針對上述命題進行檢驗。基於理論抽樣的原則，本研究特意挑選「臺北市西門商圈街道家具治理模式」個案進行探究，有趣的研究發現主要有二：（1）主流文獻主張在某些情形下，政府「協力治理模式」的運作優於「市場競爭模式」，但本研究結果卻顯示，「協力治理模式」最終仍不敵公共管理者對「市場競爭模式」的傳統偏好。（2）主流文獻上指稱的「交易成本風險」，實務上未必是影響治理模式選擇的關鍵問題。伴隨公私協力成效卓著所衍生的「分配政治」(politics of distribution)，反而被公共管理者視為燙手山芋的難題，此乃促使原本全臺首創的協力創新之商圈自治模式，不得不走向回頭路之主因。對於上述研究發現的意涵，本文也作了一些討論，期能豐富化既有的文獻與知識體系。

How and why do government authorities would like to choose a specific mode of governance? Whether the evolution of governance modes in the government sector corresponds with the normative assertion of mainstream perspectives (i.e. new public service, collaborative public management). Scholars often propose that there are at least three typical modes of governance, and argue that the mode of ＂trust-oriented collaborative governance＂ is superior to those modes of ＂competition-oriented market governance＂ and traditional ＂authority-oriented hierarchical governance＂. Plus, according to theories in new institutional economics and contract management, ＂transaction costs＂ and ＂market competition＂ will severely affect the selection of governance modes. Unfortunately, a case, characterized by multiple modes of governance, which can be provided for researchers to systematically validate the proposition mentioned above, seems hard to find. Therefore, it is difficult to discern why the modes of governance would like to change in reality. Against this background, based on theoretical sampling, the case of ＂Governance Mode of the Pedestrian Sidewalk Area for Street Furniture, Ximending District in Taipei＂ is consciously utilized to solve the puzzles. Two interesting findings derived from the case are as follows: a) under certain contexts, public managers may prefer the mode of ＂market governance＂ better than the mode of ＂collaborative governance＂; b) transaction costs are not always key factors influencing the selection of the mode of governance. Actually, ＂politics of distribution＂ is a serious obstacle that may force public manager to cease the collaborative practice. Managerial implications are also provided at the end of the paper.