臺灣行政法人制度推動歷程的歷史制度分析

A Historical Institutional Analysis of the Development of Non-Departmental Public Bodies in Taiwan

行政院為進行政府組織改造，自2002年開始推動行政法人制度。行政法人的設置，可視為政府治理與公共服務遞送模式選擇更加多元化的制度變遷。在2000年民進黨首次執政時，行政法人的推動工作尤其困難，但到國民黨執政時轉為順暢。本文以歷史制度論為研究途徑，藉由文獻與次級資料分析，探討關於行政法人制度「常」與「變」的兩個問題：其一，在該制度的推動過程中，為何會有路徑依賴的現象？其二，在民進黨執政時的第五屆立法院，以及國民黨執政時的第七、八屆立法院，在這兩個關鍵時刻為何會發生制度變遷？對此，本文從「結構」、「行動者」這兩個面向來提出解釋。其中，結構的部分，從分立政府或一致政府，以及政府改造的政治氛圍來分析；行動者方面，則聚焦於探討組織成員、立法院、主管機關之間的互動。本文有助於理解臺灣行政法人制度過去的推動經驗，以供未來借鏡。

In order to promote reform of government organizations, the Executive Yuan established the system of non-departmental public bodies (NDPBs) in 2002. The establishment of NDPBs can be viewed as a systematic change promoting more diversified governance modes and public service delivery. During the first Democratic Progressive Party (DPP) administration, the promotion of NDPBs was particularly difficult. However, the task became easier after the Kuomintang (KMT) returned to power. This article adopts a historical institutionalist research approach, analyzing the literature and secondary data to explore the issues of ＂continuity＂ and ＂change＂ in NDPBs. First, why does path dependence occur in the process of institutional reform? Second, why did the institutional change occur at two critical junctures during the fifth Legislative Yuan under the DPP administration, and the seventh and eighth Legislative Yuan under the KMT administration? The article proposes an explanation on the dimensions of ＂structure＂ and ＂actors.＂ The analysis of ＂structure＂ is about divided governments or unified governments, as well as the political climate for government reform. The analysis of ＂actors＂ focuses on the interactions between organization members, the Legislative Yuan, and the competent authorities. The article contributes to the understanding of Taiwan's experiences in promoting NDPBs and is useful for future reference.