治理組織之選擇——以行政院所屬訓練機構為例

Abstract

本論文採用交易成本途徑分析，探討三種不同治理組織──「法人化」、「委外化」，及「去任務化」選擇之交易成本與運用情境。研究範圍以民國九十二年至民國九十七年，行政院所屬的訓練機構轉型規劃為主，並以交通部所屬的公路總局、郵政總局、民航局及台灣鐵路局為個案研究，以檢證人事行政局與個案機關在規劃訓練機構轉型時，決策標準是否一致。 研究架構係以Williamson的治理組織理論為主，以解釋「法人化」、「委外化」，及「去任務化」的選擇特定條件，並建構出三種不同治理組織形式的選擇標準。主要的研究課題有：一、資產特定性如何決定治理組織的選擇；二、人事行政局的決策與理論有所差異之處；三、檢證人事行政局的選擇標準落實到所選交通部所屬訓練機構個案之決策是否與理論相符。 主要之研究發現為：當加入了技術效率與代理效率建構資產特定性與治理組織選擇之交易特性後，人事行政局的決策忽視了代理效率問題，從而造成決策的前後不一致。除卻組織改造之行政體制與政治制度干擾，人事訓練機構之改造亦應注意組織選擇之交易成本與人力資本特殊性之輕重程度。

This study applies transaction cost approach to identify and explicate the key differences that identify three generic forms of governmental mode—administrative corporation, outsourcing, and deregulation. It shows that under specific conditions, these three generic forms can be chose to provide the greatest benefit. From 2003 to 2008, Central Personnel Administration (CPA) used these three generic forms for its organizational restructuring of training institution of Executive Yuan. This study establishes the form choice standards for the three generic forms and examines whether the decision of CPA is theoretically correspond with them or not. This thesis codifies three key issues in discrete structure alternatives choice: how asset specificity affects choice; whether the decision of CPA is correspond with the circumstances distinguishing the three generic forms, and whether the decision CPA made for training institution of Transportation and Communications copes up with transaction cost theory. The research discovered that, based on the technical efficiency and agent efficiency derived from asset specificity and transaction cost incurred from alternatives of organization choice, CPA’s decision has totally neglected agent efficiency and taken inconsistent discrete structure choices. A special attention should be paid to the influence of the political and economic environment of different training authorities and the enforcement motivated by non-rational or non-economic considerations from decision maker.