國定古蹟修復治理模式選擇之交易成本途徑分析

Abstract

國定古蹟監察院係日治時期興建完成保存完整之代表性官廳建築，且持續作為辦公廳舍使用，受限於政府預算資源分配，古蹟修復必須依照損壞特性及危急程度，採用不同之方式進行，近期分別採用統包EPC、專案管理PCM、傳統DBB三種不同治理模式委外，各有其適用文化資產保存法及政府採購法之特別環境因素；是以，其委外修復治理模式選擇之深刻原因，成為本研究關注焦點。採用交易成本理論，適可綜觀其自規劃設計開始之事前成本，以迄修復過程之監督執行之差異性，如何影響治理機制之選擇，發現其影響選擇之主因。 本文依新制度經濟學，藉古蹟修復治理模式之選擇，在交易成本理論之印證中耙梳古蹟資產專用性，特別適用於交易成本立論架構，轉而由影響交易之特性分析中，建構不同參與者與組織設計之治理模式。經確立各治理組織結構關係，組織工具之激勵誘因與管理控制各端，及績效因素影響自主調適與合作調適間，產生之資訊蒐集、協調決策、監督執行等交易成本，作為評定治理模式選擇之優劣分析來源。歸結於制度性設計問題，實質影響委外模式，爰究因於政府採購法及文化資產保存法之間的拉扯。倘採自辦模式之構想，將匠師納入政府體系或成立專責修復機構，以及匠師培育、養成等，仍背離理性討論之窘竟；對國定古蹟修復經濟規模不足，且必須符合資產專用性高之特性，該自辦模式之提案，為達成古蹟永續保存使用之目的，建議擇採交易成本最低之治理模式。

The architecture of Control Yuan, now a National Heritage, is a representative, well preserved governmental building build during Japanese colonial rule, and is still in use. Depending on damage condition, urgency and government budget limit, there are various ways carrying out National Heritage restoration. During this decade, three governance models for outsourcing restoration are deployed, which are Engineer-Procurement-Construction (EPC), Plan Construction Management (PCM) and Design-Bib-Build (DBB). The environmental factors shaped by Cultural Heritage Preservation Act and Government Procurement Act would determine which model be deployed in one case. Therefore, this project focuses on the causes of governance model selection. To fully understand how the costs involved in contracting process—planning, execution and supervision—affect selection on governance mechanism, this project follows the insights of transaction cost theory. This project first confirms the asset specificity of heritage restoration and heritage itself, then sets out discussing the three governance models which consist of different participants and organizational arrangements, and analyzing the distinguishing features of transaction cost involved in each model. After confirming the governance structure of each model, their organizational instruments such as incentive intensity and administrative control, their performance attributes such as autonomous adaptation and cooperative adaptation, the project evaluates the transaction cost—information communication, coordination, execution and supervision—of each model. The analysis concludes that the contradictions between Cultural Heritage Preservation Act and Government Procurement Act define the practice of outsourcing model selection. To overcome these constraints, this project suggests a vertical integration model: incorporating artisans of heritage restoration—the professionals hold the core skills of maintaining and restoring heritages—into government organizations, and establishing a specialized department responsible for their training. Considering the market of heritage restoration, which is too small to reach economies of scale, and the idiosyncratic feature of National Heritage, the vertical integration model is most suited to maintain and restore heritages, for the transaction cost are lowest.