政策創新的影響因素：我國地方政府的分析(1999-2013)

The Influencing Factors of Various Types of Policy Innovation: A Longitudinal Analysis of Taiwan Local Governments (1999–2013)

過去對於政府創新的研究因為定義創新的方式不同，研究成果間難以比較與對話，而且多以單一個案進行分析，缺乏政府整體創新能量的解釋模型，忽略不同創新類型間差異性的探討，也沒有跟傳統公共政策領域的文獻對話。為了彌補上述缺口，本文先透過文獻的檢閱，針對創新的定義、創新的分類以及公共政策分類進行整理。接下來再透過1999～2013共15年間我國地方政府所推出共約一千個創新政策（也就是從未在其他地方施行過的政策）的資料庫，以地方政府為分析單位進行縱貫性模型統計分析，比較管制、分配、以及服務型創新各自受到哪些影響因素而產生，將公部門創新的研究與傳統公共政策的文獻進行結合。研究結果顯示，不同類型創新政策所受到的驅動因素差異甚大，與著名學者Lowi的權力場域推論也不吻合。除了提升公務員本身知識的水準（教育程度）為各類型創新產出的共通因素外，管制型創新為了回應都會環境複雜度的需要，主要出現在直轄市地區。分配（福利）型創新則是因社會需求出現與預算資源配合而產生，在此情況之下，如何提升偏鄉地方政府對社會福利性創新的提出能力，變成是分配（福利）型創新發展的重要工作。服務型創新除了上述要件的滿足之外，更需要的是政治環境壓力的刺激。

The pursuit of innovation has become a key for organizational sustainability. This paper aims to explore the factors affecting the development of different types of innovation and to classify innovations into the classic public policy categories, the regulatory and distributive policy, in an attempt to connect the discussion on innovation development models with the public policy literature. This paper performs a longitudinal analysis on 953 cases of innovation policies from local governments in Taiwan, which we have collected from the fifteen years between 1999 and 2013. The results reveal substantial differences in the factors driving different types of innovations. However, the factors influencing the production of distributive and regulatory policies in local governments, in general, do not come from the interaction of political power, as stated by Lowi. The factors mostly originate from government resources and the needs of the social environment. Service innovation mainly requires the stimulation of environmental pressure. Regulatory innovation is more likely to be initiated by municipal cities with quality human resources. Distributive (welfare) innovation is usually a response to social demands with budgetary resources. The results obtained above produce several policy suggestions for government innovation development.