臺南市古蹟公辦民營的制度探討

The Exploration on Outsourcing System for Heritages: A Case Study of Tainan City, Taiwan

台灣的古蹟公辦民營成為當前地方政府執行文化政策的重點之一，其背景是在1980年代新保守主義影響下的民營化潮流，以及2000年促參法通過後政府推動古蹟再利用的政策。本文係從政策利害關係人的角度，以個人訪談作為主要的研究方法，以台南市的三個個案進行制度分析。台南市個案的研究結果顯示，不同性質的受委託單位引發了績效評估的問題，因此對企業或非營利組織經營的個案，政府應該有清楚的委外經營目標與績效評估準則；契約的解釋權明顯偏向市政府，此升高了民間單位的契約風險，故應改變雙方在協商談判時的不平等地位；古蹟維修的行政程序與複雜度會增加民間單位的經營成本與風險，此經常為民間經營單位的事前評估所忽略；針對文化詮釋與商業利潤的權衡問題，為了避免過度的行政干預，應該重視契約的訂定；台南市的古蹟委外經營確實存在公私合夥的關係，其憑藉主要是政府資源的協助或社會資本的交換；另外，目前契約年期的訂定並沒有合理的知識基礎，作者認為應該加入專業的財務可行性評估，並適當地給予受委託單位「續約優先權」，可減輕何為恰當的契約年期爭議。

The outsourcing for heritages is an important cultural policy of Taiwan's local government. The formation of such policy is influenced by privatization movement from western developed countries and affected by the deregulation in 2000 to attract the private sector to manage the local heritage. This article aimed to analyze the institutional design of the outsourcing system for Taiwan's heritage through interviewing different key stakeholders in Tainan City.The research findings were as below: Firstly, the different types of agent give rise to the problem of performance evaluation. Hence, local government should define clear policy goals and evaluation criteria for different types of private sector, including enterprise, individual and non-profit organization. Secondly, there is an imbalance power between the entrusters and entrustees in contract interpretation, and this fact might increase the risk of the private sector. Thirdly, the maintenance cost and complicated administration processes increase management cost and uncertainty, which is usually ignored by the private sector in the pre-review process. Fourthly, for avoiding improper administrative intervention, a better and detailed contract should be emphasized. Fifthly, the extent of collaboration of public-private partnership existing in our case studies was depended on the subsidy of government resources and the exchange of social capital. At last, there is no rational basis to evaluate contract period. We suggest a financial feasibility report is necessary for government officials before tender competition. First right of refusal is also necessary for institutional design to alleviate the argument of proper contract period.