探究協力創新下公共服務沙盒之運作：以交通部噗噗共乘計畫為例
徐瑜涓、張鎧如
《摘要》
本研究以Sørensen與Torfing（2011）協力創新模型作為基礎，結合公共服務沙盒的概念，並參考Jenik和Lauer（2017）所提出的沙盒治理要件，選定交通部的噗噗共乘計畫作為協力創新的研究個案，透過深度訪談了解各地執行計畫的鄉鎮經驗，蒐集質性資料進行分析，進一步探討噗噗共乘計畫面臨的協力創新阻礙，影響噗噗共乘計畫的公共服務沙盒治理因素，以及導入公共服務沙盒緩解協力創新阻礙的做法以及影響。研究發現，噗噗共乘計畫是一項實驗性質的試辦計畫，因欲採用在地人服務在地人的模式，而於協力創新初期面臨法規制度阻礙，故嘗試採用公共服務沙盒試圖突破困境。經由給予彈性法律與監管框架、建立利害關係人生態系統、盤點量能與資源和市場條件等面向的討論，發現建立明確的法規、透過中介機構治理沙盒並與各方溝通協調、獲取各領導者支持、與在地合作並貼近在地組織的理念與取得共識、挖掘在地人力與爭取多元資金皆是重要關鍵。此外，有別於著重市場條件的金融監理沙盒，公共利益指向的公共服務沙盒更強調於政策困境的解決，因此沙盒建置與推動上也需獲得政策支持與透過當地社會網絡的緊密連結。藉由採用公共服務沙盒，有助於緩解協力創新過程中面臨的制度阻礙，並有促進與推動相關法規修正的效果，同時亦有利於緩解面臨的各項組織間阻礙、組織本身阻礙、以及身分阻礙。最終，本研究針對未來政策沙盒實務運作與規劃提出建議，並指出未來研究應更廣泛地探討公共服務沙盒的應用。
[關鍵詞]：公共服務沙盒、試驗政策、協力創新、協力創新阻礙、噗噗共乘計畫
Exploring Public Service Sandbox in the Context of Collaborative Innovation: A Case Study of the BUBU Car-Sharing Program by the Ministry of Transportation and Communications
Yu-Chuan Hsu, Kaiju Chang
Abstract
This study explores the operation of public service sandboxes within collaborative innovation contexts by integrating Sørensen and Torfing’s (2011) collaborative innovation model with the concept of public service sandboxes and applying sandbox governance factors proposed by Jenik and Lauer (2017). The BUBU Car Sharing Program under the Taiwan Ministry of Transportation is selected as the research case. This study utilizes in-depth interviews to collect qualitative data from township experiences and conduct an analysis. The findings show that this pilot program, designed through a “local services for local people” model, faced challenges in the early stage of collaborative innovation due to regulatory constraints. Public service sandboxes were introduced as a strategic approach to deal with these barriers. The research highlights several key factors for successful sandbox implementation: building precise regulations, involving the intermediary organization for management and coordination, securing strong leadership support, working with the community, and ensuring adequate resource allocation. Unlike financial regulatory sandboxes that prioritize market conditions, public service sandboxes focus on resolving policy challenges. This requires robust support from government policy and local social networks for effective implementation. The findings demonstrate that public service sandboxes help mitigate institutional, inter-organizational, organizational, and identity barriers in collaborative innovation processes and contribute to facilitating regulatory amendments. Finally, the study offers practical recommendations for future policy sandbox implementation and underscores the need for broader exploration of public service sandbox applications in subsequent research.
Keywords: public service sandbox, pilot policy, collaborative innovation, barriers to collaborative innovation, BUBU Car Sharing program