從傳統政府、電子治理到數位治理： 台灣的政策脈絡、制度與前瞻趨勢（1980s-2020s）

Abstract

本研究旨在透過歷史制度論與民主國家自主性理論等分析途徑，論述台灣數位政府相關政策的發展過程，並針對該政策脈絡進行分析，進而發掘其中存在的治理性與轉型困境。本研究所關注之數位政府政策涵蓋1980年代初期迄今，我國政府所推動的中長期國家經濟建設計畫、電子化政府與數位政府等階段性計畫。針對政府的數位政策歷史脈絡，本研究採用次級資料分析法與訪談研究法，梳理我國近四十年來數位政府的發展脈絡與演變過程。隨後本研究透過制度、價值與政策推動因素三種分析途徑，闡述我國政府如何建構現今數位政府的國家想像，並探索形塑、影響我國數位政策制度的相關因素。

本研究的分析表明，現今我國的數位政府政策於治理性上面臨的問題在於仍深受過去遵行的科層治理模式與市場治理模式所影響，因而注重強調管理效率的「策略系統性」（systematic），而非強調實踐政府與社會連結的「脈絡系統性」（systemic）。另外，我國的數位轉型困境在於政府互動關係的不良、政府運作模式受既有諸多行政體系與規則所形成的超穩定政策結構給套牢。

為了解決上述的治理性問題與轉型困境，本研究借鑒積極型國家學理概念與轉型治理理論（transition studies）指引，強調我國政府對於「數位轉型」的理解，應由追求資訊技術應用的發展的單純「政策智慧化」意涵，轉向追求兼顧「數位治理」與「永續發展」的「孿生轉型」，加速由「管理」向「治理」的轉型，以更好地應對如今社會問題逐漸複雜以及社會風險日漸提高等社會挑戰。

Taiwan has been promoting digital government projects since the late 1970s to meet national development needs and digital governance achievement. This study investigated the context and influencing factors of Taiwan’s digital government policy through the historical institutionalism and democratic state autonomy theory, to explore the problem of governmentality and digital transition of Taiwan. This research shows that Taiwan’s government is deeply influenced by the centralized bureaucracy institutions, administrative rules and market government model followed from the past, so it has not thoroughly reviewed or introspected past policy models while promoting digital government policies. Therefore, the Taiwan government needs theoretical guidance for policy development to shape its digital government policies’ core strategies, principles, and evaluative mechanisms.

In order to solve the governmentality problems and transition dilemmas, this study provides a reflexive assessment of the digital government policy and highlights issues that government should address when promoting its digital policy. We suggest that the understanding of "digital government transition" should be based on the pursuit of twin transformation that consider both digital governance and sustainable development, rather than the pursuit of the increasing information technology applications and governmental policy intelligence. This change can accelerate the transition of Taiwan’s government from management to governance, so as to better deal with social challenges such as the increasingly complex social problems and social risks.