跨機關任務編組運作過程多元案例之研究：二階的制度安排之考量

Using a Multiple-Case Studies Design to Explore the Operation Process of Cross-agency Task Forces: A Consideration of Second-order Institutional Arrangements

國家重大創新政策多數需要政府跨機關協力來達成。在既有的公共管理文獻中，機關間協力的研究主題可謂是汗牛充棟。然而，聚焦在跨機關任務編組本身的研究卻不多，學界也甚少從跨機關任務編組的經驗中汲取寶貴的教訓。在此研究背景下，本研究的分析架構係從機關間協力和臨時性組織的研究中，獲取一些洞見。運用這樣的分析架構，本研究檢視了當前中央政府三個主要產業發展計畫和方案的跨機關任務編組之運作過程。本研究藉由訪談、焦點團體座談和官方文件途徑來收集資料，並使用變數導向的比較案例法來進行後續的資料分析。整體而言，經由比較不同組織系絡下跨機關任務編組之運作過程，本研究發現這類任務編組的領導權威與預算管理能力普遍有精進空間，也凸顯出國家創新政策的挑戰中，跨機關協力的確是一項棘手議題。換言之，成立跨機關任務編組未必就能發揮跨機關協力的功能，因為這只是「初階的制度安排」（first-order institutional arrangement），若無其他配套措施，率多只能提供形式性、宣示性的作用。這也意味著跨機關任務編組欲發揮實質性的作用，後續最好搭配「二階的制度安排」（second-order institutional arrangement）；後者制度安排所牽涉的人事佈局、同地辦公、課責機制與集體所有權等精心設計，可能是巧妙維繫跨機關任務編組運作過程有效性的關鍵因素。

Most major national innovation policies require inter-agency collaboration. There is a vast amount of public management literature on interagency collaboration. However, research on cross-agency task forces per se is rare, and there has been little effort by academia to codify lessons learned from cross-agency task force experience. Against this background, the analytical framework draws insights from studies on interagency collaboration and temporary organization. Using the framework, the research examines the operation process of cross-agency task forces of three major industry development plans and programs at the central government level in Taiwan. Data were collected through interviews, focus groups, and document review, all of which were analyzed using the variable-oriented comparative case method. Overall, by comparing the operation of cross-agency task forces in different organizational contexts, this study finds that there is generally room for improvement in the leadership and budgetary management capabilities of such task forces, and the conclusion highlights the fact that cross-agency collaboration is indeed a difficult issue in the context of national innovation policy challenges. In other words, the establishment of a cross-agency task force does not necessarily mean that it can function as cross-agency synergy, as it is just a ''first-order institutional arrangement'' and without other complementary arrangements, it can only provide a formal and declarative function. This also means that in order for cross-agency task forces to be effective, they should be followed up by ''second-order institutional arrangements;'' the latter of which may involve an elaborate design of personnel layout, co-location, accountability mechanism and collective ownership that would be key to the effectiveness of the cross-agency task force process.