從「社會企業」到「社會創新」之政策變遷分析：多元流程模型的觀點
江明修、張浩榕
《摘要》
隨著社會不斷進步發展，公共服務的需求更加多元，原本政府、公司企業、非營利組織提供服務的方式產生間隙，近年來「社會企業」（social enterprise）成為解決社會問題的新方式，其具備社會與經濟雙重底線目標，相較於非營利組織更有財務自主性，而相對於企業具有更多社會使命。
進入新世紀後我國逐漸發展相關政策，但散見於各部會施政計畫中，直到行政院於2014年核定「社會企業行動方案」統整相關政策，然而公共政策並非一成不變，行政院於2018年核定「社會創新行動方案」延續前方案。
本研究蒐集政策方案、相關專書、學術期刊、政府資料，並檢閱社會企業、社會創新及政策變遷理論，形成具體研究問題，進而探討從社會企業行動方案到社會創新行動方案的政策過程、受到那些因素的影響、呈現何種政策變遷態樣，以及是否符合政策標的團體需求。
本研究依據Kingdon（1984）的多元流程模型的政策變遷影響因素建構研究架構，透過次級文件分析法分析相關研究資料，與政府部門及政策標的團體進行深度訪談，發現執行機關與政策標的團體相同，前後政策是漸進式的政策賡續，而變遷主要力量來自政治流與政策流的互動，執政權輪替影響施政目標轉變，執行機關則因應調整備選方案，但就政策標的團體來說，受到政策影響較小，仍大多專注於自身營運狀況。
[關鍵詞]： 社會企業、社會創新、政策變遷
An Analysis of Policy Change from “Social Enterprise” Action Plan to “Social Innovation” Action Plan: The Multiple Streams Model Perspective
Min-Hsiu Chiang, Hao-Jung Chang
Abstract
Demands for public services have increased and diversified rapidly due to continuous social development, and the gap between government, enterprises and non-profit organizations (NPOs) for providing public services has become more significant. To solve social problems arising from the above facts, the concept of “social enterprise” has created a new path. Social Enterprise has multiple characteristics to solve both social and economic problems: it is more financially independent compared to NPOs, and its operators are more aware of social responsibility than leaders of profit-oriented enterprises.
With the advent of the 21st century, the government of Taiwan has developed policies regarding social enterprise. Most of them were not formulated and had been scattered in political projects written by various ministries until the approval of “Social Enterprise Action Plan” by the Executive Yuan in 2014. In a short period of time, this plan has been further changed into “Social Innovation Action Plan” by the Executive Yuan in 2018.
Based on the materials collected from policies, monographs, academic journals, public government information and after reviewing theories relating to social enterprise, social innovation as well as policy change, this paper is concerned with the following questions: How does policy change from “Social Enterprises Action Plan” to “Social Innovation Action Plan”? What form of policy change does it demonstrate? Does the change from “Social Enterprises Action Plan” to “Social Innovation Action Plan” meet the requirements of policy target groups?
This paper constructs its research framework based on Multiple Streams Model. The main research methods used in this paper are secondary document analysis and in-depth interviews with government sectors and policy target groups. The result of the research shows that the latter policy is incrementally policy succession of the former policy. Because the executive agencies and policy targets groups remained the same, the main factors to such policy change are the interactions between political stream and policy stream, and the impacts of change in policy goals resulting from political ruling party alternation and the actions made by executive agencies brought about changes in policy alternatives. This paper also finds that, while the action plans do have policy outputs, such policy does not have significant impact on the policy target groups; most entities rather focus on its own commercial operation.
Keywords: social enterprise, social innovation, policy change