跨國間的政策學習與政策移轉有逐漸增加的趨勢，但國內的相關研究仍在發展階段，本文以Rose的政策學習及Dolowitz與Marsh的政策移轉為理論架構，並以行政院勞委會2001年推出的永續就業希望工程為研究個案，以深入訪談法訪問當時參與政策規劃的三位學者顧問與兩位幕僚，探討國內參考國外經驗的政策設計過程，並分析勞委會參考歐盟第三系統就業方案的動機、政策移轉程度，最後並從政策移轉角度，對將來的政策設計提出建議。
本文的研究發現如下：
一、永續就業工程參考歐盟第三系統政策方案的動機在於國內九二一災區重建大軍的在地創造就業經驗與歐盟第三系統與就業方案具有相似性，兩者以第三部門創造就業管道的作法，均發揮輔導就業的成果，增加政策的可行性。此外，由於地方政府對第三部門及新的就業輔導措施成效存疑，因此，基於政策行銷的動機，永續案以「參考歐盟經驗」，與國外最新政策搭上關聯，以便說服地方政府及加強國人信心。二、政策移轉程度屬於政策移轉程度最淺的「啟發」（inspiration）程度，永續案僅參考歐盟的政策精神與概念，並非政策方案的全盤移植。由於永續案政策規劃時間不足，沒有時間及資源更深入探究歐盟作法，此外，由於台灣與歐盟的社會條件差異性大，政策方案需符合台灣社會條件與需求，因此永續案並未全盤移植歐盟方案。三、政策執行遭遇的障礙包括（1）地方政府缺乏相關經驗，因此開創的就業工作多為清潔等發展性較低的工作。（2）國內NPO、NGO的管理、人事及財務會計制度不健全，缺乏能企劃提案的人才。（3）政府初期對非營利組織的投資仍較保守，後期才投入協助NPO管理與行銷。（4）地方派系瓜分資源，公器私用。
本文提出的政策建議如下：
一、未來國內在進行政策移轉時，應避免外界質疑政策移轉徒具形式，國外政策經驗淪為替政策背書，可更細緻的探究國外政策方案的利弊得失，深入探討對我國政策方案的啟示及適用於我國社會環境的可行性。二、政府參考國外政策方案的研究工作，平時應有專責的研究單位負責，改善目前政策研究案委託外包、卻缺乏實際效用的情況。在短期的政策方案規劃上：應增調人力及預算支援業務主辦單位，分兩組人同時進行政策研究與政策方案的設計。三、政策可行性不確定性高時可先以小規模的先導計劃實驗，修正後再大規模實施。在沒有時間進行小規模先導性實驗計劃的情況下，從做中學、從執行中發現問題，再對政策方案本身進行微調、修正，也是一項折衷的選項。四、移轉他國的政策方案，需考慮在本國社會的條件與系絡下，政策方案需作那些調整與配套，以避免移植的方案水土不服，並應考量國內的政治生態會對政策方案造成何種影響，可如何事先預作制度設計與規劃。
本文並嘗試結合政策規劃與政策移轉理論（見圖5-2，頁141），在決策模式理性程度高低的分類之外，從政策移轉的視角，補充政策學習、政策擴散的觀點，解釋為何一國的政策會採納他國或國內其他機關已採行的決策，以增強對政策決策過程的解釋力。但本研究僅以永續就業工程計劃一個案為例，未來仍待相關研究繼續深入分析。 / Increased international policy learning and policy transfer have drawn high academic attention. However, there is little research to unravel both the motivation and content of policy transferred from abroad in Taiwan. This paper applies Rose’s (1993) lesson-drawing theory and Dolowitz’s (2000) framework of policy transfer to analyze how EU’s employment project, The Third System and Employment, has influenced the Sustainable Employment Plan in Taiwan and why Taiwan learns from the EU. Three academic consultants and two public officers of the Labour Affair Committee were interviewed and the process, motivation and content of policy transfer have been analyzed.
There are four key findings of this paper. (1) Far from making rational decisions, policy makers stopped search for policies in other countries when the first acceptable alternative arrived. Although the local experience of job creation through the third sector in the areas devastated by 921 earthquake shares similar spirit with EU’s policy project and thus facilitates policy transfer, policy makers admit that relating policy to experience from abroad is also a technique of policy marketing to enhance policy legitimacy and public acceptance. (2) The extent of policy transfer is low and only limited to the ‘inspiration level’ due to two reasons. Besides time pressure and resources constrains during the policy making process, which refraining policy makers from more in-depth research of EU’s policy project, the recognition of heterogeneous context and social conditions in Taiwan and EU countries also leads policy makers to design policy and details of execution locally rather than copying from EU. (3) Promoting job opportunities through the third sector in Taiwan encounters several obstacles in implementation, including that most jobs created were low-skilled ones rather than sustainable ones; NGOs lack sufficient ability to execute, or even to propose employment projects; government mistrusts of NGOs; and local political fractions misuse of project budget to treat their political alliance.
The policy implications from this case study are: (1) Policy makers should avoid using policy transfer as a tool of policy marketing. Rather, in-depth research of foreign policies and applicability to local context is warranted. (2) While the results of the contract-out policy research projects are usually found less practical to help policy planning, it is necessary to establish policy research centers within the government to draw lessons from abroad in the long run. In the short term, it is useful to allocate adequate research resources, including budget and manpower, during the process of policy transfer and planning to improve the quality of public policies. (3) Use policy pilots to avoid great policy mistakes when the feasibility of the policy transferred is highly uncertain. (4) Consider local context and conditions when transferring foreign policy experiences and make adjustments in advance.
This paper also tries to combine policy planning and policy transfer theories (see Graph 5-2) to enhance the robustness of interpretation of the policy process which involves policy learning. While traditional analysis focusing on the extent of rationale of policy-making, this paper adopts the perspective of policy transfer and attempts to locate an improved model of policy planning. However, only one case was researched in this text and more in-depth studies are needed to adapt the analytical framework in the future.
| Identifer | oai:union.ndltd.org:CHENGCHI/G0902560211 |
| Creators | 武桂甄, Wu, Kuei-jen |
| Publisher | 國立政治大學 |
| Source Sets | National Chengchi University Libraries |
| Language | 中文 |
| Detected Language | English |
| Type | text |
| Rights | Copyright © nccu library on behalf of the copyright holders |
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