不同制度論觀點下的制度起源問題：公務人員保障暨培訓委員會的個案研究

The Question of Institutional Origin from Different Theoretical Perspectives: A Critical Case Study on the Civil Service Protection and Training Commission

公務人員保障制度是平衡民主與行政相關制度建構重要的一環，如果我們視公務人員保障制度為一種縮限行政權「官僚控制」能力、建構官僚「行政中立」誘因結構的作為；則我們可以在「誰要行政中立？」的關鍵問題之下，推論「現勢聯盟」（enacting coalition），不應該會主動釋放權力，建構行政中立相關法制建設。因此，本文最主要的研究問題，就是試圖回答：「公務人員保障暨培訓委員會於85年的成立，為何是在國民黨一黨獨大的時刻？」
本文植基在新制度論的範疇當中，討論制度起源（origin）的問題，由於新制度論內部對於該問題有來自於經濟學與社會學兩股不同勢力的說法，本研究也將保訓會成立的過程，當作一個「關鍵個案」（critical case），以個案研究中運用現有資料分析與深度訪談的方法，一方面了解並回答保訓會成立的過程中，各種關鍵參與者的偏好與互動內容，另一方面也作為理論上檢定不同新制度論流派間，解釋效力的優劣，是一種「關鍵個案研究」的方法。
本研究結論預期對學界可產生三個主要貢獻：其一，對於官僚控制理論的相關研究，提供一條結合行政中立與制度起源的路徑；其二，藉由新制度論觀點的重新詮釋，彰顯研究人事制度起源在公共行政學界的重要性；其三，對於新制度論內部流派的爭議，可以藉由本研究進行新一波的對話與整合。對實務界來說，本研究也可打開長久以來台灣學界對行政中立研究「重訓練、輕忽保障機制設計，以及焦聚規範性理論、忽略實證研究」的現象，提供一個針對台灣政治環境而設定的理論與實務思考架構。

The protection of civil service is one of the“check-and-balancing”institutions between democracy and public administration where it limits the power of executive authority and promotes administrative neutrality. However, in reality, this intention might not be politically feasible for the“enacting coalition”to realize its origin, when the enacting coalition is a dominating force in political arena. As a result, the key research in this research is“why the Civil Service Protection and Training Commission (CSPTC) is established when the KMT is at its one party dominance era.”
In this research, we utilize the new institutionalism to discuss the problem of institutional origin. Because there are different arguments among the sects of the new institutionalism to explain the origin, we treat the origin of the CSPTC as a“critical case”study to determine which argument can answer the key research question better. By using secondary data and in-depth interview methods, authors are trying to explain not only the origin of the CSPTC but how well different theoretical sects explain a real world case.
This contributions of this research is as follows: First, this research opens up a new theoretical path for exploring the relationship between institutional origin and the functionality of administrative neutrality. Second, based on competing critical case study, the importance of studying institutional origin is realized. Third, the internal conflict of institutionalism is moving forward by an in-depth case study. Lastly, for the practical purpose, this research opens up a door for studying administrative neutrality where in the past is dominated by normative and legal-formalist approach to be transformed into a institutional mechanism-design and evidence-based fashion.