澳門社會政策制定與福利體制的發展—從利益團體（社團）觀點闡釋

Abstract

東亞福利體制的研究較少納入澳門進行探討，同時有關澳門社會政策制定過程，與及澳門社會政策模式發展如何影響福利體制的文獻亦不足。故此，本研究首先運用歷史制度論的觀點來分析澳門社團的發展及其與政府關係的脈絡，其後再以教育、勞動、社會工作及福利三項社會政策作例，採取文獻分析法闡述社團如何對社會政策制定和發展產生影響，並在此基礎下討論社團對澳門社會政策和福利體制發展的形成帶來哪些意義，與及當中的獨特之處。 研究發現，澳門社團的發展脈絡主要受到四個關鍵時刻所影響，並以路徑依賴的方式發展，形成社團政治的政策制定模式影響社會政策結果。當中包括：1. 葡萄牙對澳門的佔領；2. 戰爭發生及澳葡政府的失勢；3. 澳葡政府對澳門的政治改革；4. 澳門回歸中國管治。與此同時，研究結果顯示可從四方面來闡釋社團在社會政策制定過程所產生的影響：1. 歷史遺緒；2. 社團的利益背景及對政府的取態；3. 社團與澳門特區政府關係的影響；4. 社團政治模式發揮作用的影響。 基於研究發現，研究者進一步討論澳門社團政治模式對澳門社會政策和福利體制發展與形成所帶來的三個意義，包括：社團功能發揮的獨特性；社團與特區政府的關係影響福利體制發展的獨特性；社團在政治參與和社會文化上的獨特性。與此同時，研究者建議未來的研究方向，可集中討論澳門面對新舊風險來臨時，政策的制定和發展取向會否出現改變，從而推動新的福利體制發展方向；以及透過質性訪談方法，探討各個政策參與者在政策制定過程中的互動模式，並了解他們對社會政策模式和福利體制作出轉變的看法，豐富澳門在東亞福利體制議題上的討論。

Studies on the welfare regime in East Asia seldom include Macao in the discussion. Moreover, there is insufficient literature on the process of social policy-making in Macao and how the development of Macao's social policy model affects the welfare regime. Therefore, firstly this study applied the perspective of historical institutional theory to analyze the context of the relationship between the development of Macao associations and the government. And then, this study took the three social policies (education, labour, and social work & welfare) as critical examples to illustrate how associations affect the development of social policy-making. Based on it, it discussed the significance and uniqueness of associations in the development of Macao's social policies and welfare regime. The study found that the development of Macao associations is mainly affected by four critical moments and develops path-dependent, forming a policy-making model of 'association politics' that affects social policy outcomes. These historical periods include 1) Portugal's occupation of Macao; 2) The outbreak of war and the loss of power of the Macao-Portuguese government; 3) The political reform of Macao from the Macao-Portuguese government; 4) Macao’s returns to Chinese governance. At the same time, the research results show that the influence of associations in social policy-making can be explained from four aspects: 1) Historical legacy; 2) The interesting background of associations and their attitude towards the government; 3) The relationship between associations and the Macao SAR government; 4) The impact of the role of 'associations political' models. Based on the findings of this study, the researcher further discussed the three significances brought by the 'associations political' model in Macao to the development of Macao's social policies and welfare regime. It includes the uniqueness of the functions of associations; the relationship between associations and the Macao SAR government affects the uniqueness of the development of the welfare regime; and the uniqueness of associations in political participation and social culture. The researcher also suggests that future research direction can focus on discussing whether Macao will change its policy-making and development orientation when facing new and old risks to promote the new direction of the welfare regime. Moreover, through the qualitative interviews method, explore the interaction mode of various policy participants in the policy-making process, and understand their views on the transformation of social policy models and welfare regimes, to enrich the discussions on the East Asia welfare regime issue.