因利誘導與協力關係 ──以社區大學公辦民營為例
呂佩安
《摘要》
基於「新公共管理」精神所衍生出之政策工具──協力關係（public-private partnerships, PPPs）──應超越過往單純外包、私有化、契約委外之模式，立基於公私共同承擔整體責任之公共課責，建立長久關係。原初立意良善的協力關係開展之後，搭配運用以強化關係的因利誘導（inducement），經政府設計、施用，其執行結果產生許多非預期的衝擊。
本研究以政策工具之設計、施用及成效為論述基礎，首先簡要說明協力關係的常理與變異；其次探討政府對民間夥伴施用誘因機制，對協力關係所產生的影響。復次，本研究以社區大學公辦民營為例，透過文獻分析及深度訪談，歸納分析社區大學公辦民營之協力關係發展系絡，以及辦學場所、獎補助金、評鑑辦法、學位授予等四項辦學相關誘因機制，如何影響協力關係及合產績效。本研究發現，因利誘導對於協力關係的非意圖或反功能影響包括：無自有校地之民間承辦者承擔較大風險，逐漸轉向不對等、不情願的協力勉強，民間協力的多元化、社區化、去體制化等優點被削弱，對短期行為與粗廉規劃的不當激勵，不均衡的單向課責；渠等現象顯示出，公私兩造應重新面對社大定位及公辦民營之法理基礎，政府也需積極主導協力關係之維繫，避免控制與依賴，維持平衡與互賴。
[關鍵詞]：政策工具、因利誘導、協力關係、社區大學、公辦民營
Inducement and Public-Private Partnerships: a Case Study of Privatized Community Colleges
Pei-An Lu
Abstract
The policy instrument, derived from the spirit of “new public management,” public-private partnerships (PPPs) ideally ought to be based on public and private sectors undertaking the public accountability reciprocally and, furthermore, transcend outsourcing, privatization and contract-out for building a sound and long-term relationship. After the PPPs with good intention have been initiated, the government plans and implements inducement for strengthening the relationship between the public and private sectors. Surprisingly, it has resulted in many unexpected shocks.
This study is grounded upon the planning, implementing and outcome of policy instrument. First, the author makes a description of normality and variation of PPPs; second, he probes what impacts have been made on PPPs from inducement; third, with a case study of privatized community colleges, he uses literature analysis and interviews to induce the context of development of privatized community colleges and its PPPs, and how the inducements (i.e. campus, grant-in-aid, performance assessment and degree meriting) influences PPPs and the performance of coproduction. The finding of this study is that the inducements do have some unintentional and even dysfunctional impacts on PPPs: first, the private contractors without their own campus would bear higher risks; second, the relationship between the public and private sectors tends to become asymmetric and reluctant collaboration; third, the advantages of collaboration such as service diversity, community-based services and deinstitutionalization would be reduced; fourth, improper encouragement for myopic behaviors and hasty task planning could happen; and fifth, there could be unbalanced and one-way accountability of the private contractors. These situations show that both public and private sectors have to deliberately deal with the orientation and legal foundation of privatized community colleges. In the meantime, the government should lead a symmetric and reciprocal partnership positively and try to keep the private sector from being controlled and dependent, and to keep the relationship well-balanced and interdependent.
Keywords: policy instruments, inducements, public-private partnerships, community colleges, privatization