政務事務互動關係：台灣文官對政治的容忍之研究

The Interaction between Political Appointees and Career Officials: A Study of Bureaucrats' Tolerance of Politics in Taiwan

在政務事務互動中，永業文官回應政務官員具有規範性及經驗性意義。但是，過去研究文獻大多採取由上而下的角度解釋雙方互動與事務官回應。即使後續研究認為政務事務互動是一個動態過程且強調雙方混合或合作關係，不過仍然對於事務官回應政務領導之瞭解甚少。此外，在國內民主轉型環境下，如何讓事務官願意回應政務領導具有理論與實務價值。本文採取由下而上的觀點，應用事務官對政治的容忍之態度，探討事務官看待政策過程的民主政治運作是否影響他們回應政務領導。本文使用2008年台灣文官調查資料庫進行檢驗並發現，當事務官對政治的容忍程度愈高時，行政回應立場也較為正面。本文貢獻在於探討過去文獻較少關注文官本身的政治認知，即對政治的容忍，希望補充既有國內外政務事務關係與官僚回應研究之不足。最後，本文提出一些後續研究與實務建議。 How to make career officials more responsive to executive leaderships is critical in political-administrative interactions. According to past literature, while the relationships of political appointees and career officials are illustrated by political control or dichotomy, these studies explain their interactions from top-down perspective. Some researchers have even argued the matter of cooperation, or mixed model between their interactions. However, they paid little attention to how career officials respond to political appointees. This study aims at examining tolerance of politics and career officials' responsive attitudes to political appointees by discussing their perception of political influence in the policy process of democracy and responsiveness. By using the survey data of the TGBS (Taiwan Government Bureaucrat Survey) from 2008 and the sample of top and middle level officials in central government, this study finds that career officials' response to executive leadership is positively associated with their attitudes toward tolerance of politics. The findings fill a gap in the past literature about [the] political-administrative relations by focusing on a bottom-up view of career officials' attitudes toward political systems. Also, this study systematically exams the interactions between central government level's political appointees and career officials after the first turnover of ruling party in Taiwan. In the final section, research limits and further suggestions are provided for scholars and practitioners.