我國政府採購知識移轉研究―以中央某三級機關限制性招標經公開評選勞務採購案為例

Abstract

政府採購作業本身蘊含豐富的知識內容，組織內部單位或人員之間各種知識傳送、專業諮詢或意見溝通，即為各種採購知識移轉(傳送、吸收和利用)的過程，為知識管理中重要活動之一。本研究以中央政府某三級機關經公開評選之限制性招標勞務採購作業為例，並利用結合「外顯―內隱」和「6W」這兩種知識類型的「應用知識矩陣」來分析採購流程中所含納的知識類型，藉釐清不同類型的知識和歸納知識移轉的途徑，以便進一步檢視在政府採購流程中知識移轉的情形，並探討影響政府勞務採購知識移轉促進和阻礙的原因。 研究發現，此採購類型關鍵流程和知識聚焦在請購需求的簽辦、評選委員會成立與召開、履約管理及驗收這幾個階段，關鍵知識以標準化文件為主，執行時仍仰賴實務經驗知識判斷，兼具內隱性和外顯性，並可對照不同層次知識類型，從而得知若作業階段程序化較低時，須仰賴具備專業內隱知識的人員，才能發揮知識效果。 知識移轉途徑和促進或阻礙移轉因素，可從個人、團隊交流和組織三個層次進行分析。個人層次須累積知識和提升學習動機等能力，且與個人特質有關，團隊交流層次可能因個人知識或能力不足，加上各單位立場不同，產生可信度和信任感不足等知識移轉的阻礙，而必須上升到組織層次尋求解決，透過組織層次的教育訓練、長官指示、方便知識文件取用的知識管理系統等方式，以調節個人能力之不足，並於團隊交流不順暢時予以協助。由此可知三個層次會由上而下，或由下而上相互影響。 最後提出以下政策建議：優化教育訓練內容、完善而即時更新的組織內部文件範例並提供最佳實務移轉案例、和培訓採購種子人員並建立獎勵制度。

The government procurement process contains a wealth of knowledge. There are various forms of knowledge transfer during professional consultation with interpersonal communication between personnel in each unit and department within the organization. How to transfer, absorb, and utilize the existing knowledge is a key component of the knowledge management processes. This research is based on the example of open selection limited tendering of service procurement at a third-level department of the central government. The research combines two types of "Knowledge Matrix Applications" – "explicit-tacit" and "6W", to analyze the types of knowledge in the procurement process, and to clarify different types of knowledge, along with the pathways of knowledge transfer used to further examine knowledge transfer during government procurement processes. This research will explore effectiveness of knowledge transfer enablers and barriers in government service procurement. The study found that the key processes and knowledge of this type of procurement focus on the following few stages: they are 1) the drafting of request for proposal; 2) establishment and convening of meetings of the organization of the procurement evaluation committee; and 3) contract performance management and final acceptance. These stages of the process are primarily based on the use of standardized documents. However, in practice, this still requires practical experience and judgment to make sure the legality and legitimacy during the government procurement process – which is both tacit and explicit, and can be compared with different levels of knowledge types. If the instructions within an operational procedure are limited, it is necessary to rely on experienced personnel to make the knowledge transfer effective. Knowledge transfer pathways and the knowledge enablers and barriers can be analyzed on three different levels: individual, team/exchange, and organizational. Individuals must accumulate knowledge, improve their abilities and depend on personal traits, while teams/communications may be lacking in knowledge or abilities. Such a lack coupled with the different positions between each unit causes a lack of credibility and trust that can become an obstacle to knowledge transfer. In order to resolve this problem, seeking solutions from higher level organization is required. Insufficient personal ability can be improved through organizational-level employee training, executive instructions, and the establishment of a knowledge management system that facilitates access to knowledge documents, etc. Such development can also assist to smooth team communication.The three levels of individual, team/exchange and organization may interfere with each other from the top- down or the bottom-up. Finally, I propose the following three policy suggestions: 1) optimize the content of employee training, 2) perfect and update examples of internal organizational documents on a timely basis and to provide the best practice cases, and 3) train seed procurement personnel and establish a reward system.