日本獨立行政法人制度研究

Abstract

自1990年代以來，各國鑒於政府財務壓力沉重，但政府職能日益擴張且組織龐大影響行政效能，各國政府遂進行政府改造運動。其相同趨勢是將政府轉型為領航者的角色，負責政策的制定及監督；非權力行政之執行工作、專業性或較適合彈性化組織之單位，則盡量自行政機關移出，改由行政法人或Agency負責，以更專業且更具效能的組織來推動公共事務。行政法人制度旨在檢討政府傳統任務並導入企業經營模式，企圖鬆綁行政機關僵化的財務、人事及績效管理，以彈性自主因應多元社會變遷，並期望可減少國家財政負擔。綜觀各國，目前以英國及日本的行政法人推行最為成熟，日本自1996年末橋本內閣開始推動行政改革，迄今已成立近百個獨立行政法人。本研究目的在於探討日本獨立行政法人制度的背景與執行成果，以做為我國未來持續推動行政法人的參考對象。日本獨立行政法人制度有頗多爭議之處，例如區分公務員型與非公務員型兩類型獨立行政法人、未設由國民或國會監督的機制、公益性組織績效難以衡量作為評價標準等。至於人員身分問題，由於日本政府獨特的｢勸獎退職｣提早退休制度，退休後再任之｢空降｣情形在獨立行政法人中相當普遍，以及平均年薪甚至比公務員多出10%等有違｢小政府｣之改革大前提的情形。至於我國，面對連年加劇的少子女化、國家財政日益拮据等問題，政府如何降低成本但同時創造最佳效能，是未來努力的方向。我國政府改造之下的行政法人制度，已於2011年04月27日完成立法，國立中正文化中心為我國首個行政法人之組織，行政院亦已研擬數個優先推動為行政法人的個案陸續推動。各國的行政法人制度皆有其特色，我國在參考適用上尤須注意各國之間的背景差異問題，以日本為例，由於歷史悠久之官僚文化，造成改制過程中的｢政治妥協｣因素影響，改制初期公務員型行政法人比例達95%，即使獨立行政法人制度實行後仍未顯著達到減少國家人事預算的目標，同時亦存在合理監督及空降的問題。藉由參考日本推行獨立行政法人的經驗，可以發現行政法人化並非完全等同於組織精簡與效率提升，如何兼顧行政組織效率與公益性質，是我國未來推動行政法人制度所不容忽視之處。

Since the 1990s, due to public finance crisis and governmental bodies had grown large and powerful, but efficiency declined, OECD countries tried to reform the government. The common trends are governments take leading roles, responsible for policy making and control. The others not belong to” Schlichte Hoheitsverwaltung” tend to transform into Independent Administrative Institution or Agency. According to the rational, it is more efficient, more flexible and better in serving quality.

Facing the emerging challenges from international and domestic communities, in November 1996, Prime Minister Hashimoto established the Administrative Reform Council as an advisory body, a usual procedure to undertake the major administrative reform in japan. The Administrative Reform includes two tasks: reduction of number and amalgamation of ministries and agencies and established Incorporated Administrative Institution (IAI). The basic idea of this system is to separate policy or program implementing functions from policy-formulation functions of the government and to allow more flexible, autonomous and business-alike management for policy implementation, transparency and to ensure efficiency and effectiveness.

This study will focus on these current efforts from Incorporated Administrative Institution, and the administrative reforms since 1996 in Japan. According to the study, there are some obvious deficiencies in IAIs. For instance, there are two types of IAIs, particular and non-particular, based on the employees who may or may not have the status of civil servants. Differences from those two types IAIs are quite vague, basically based on political decision. Otherwise, the lack of congressional oversight from citizens. The most critical problem is amakudari (revolving door), retired civil servants obtain jobs with private industry or public organization -like IAIS-often those which they had dealt in their public capacities. Since a long time ago, this is a normal aspect of administrative life in Japan.

The Administrative Corporation developed in Taiwan since 2004, Japan’s synopsis may be one of some positive reference to the future.