民主治理與非多數機構：公民社會的觀點

Abstract

本文嘗試分析非多數機構的意義、特性以及立論根據，並探討非多數機構作為政府部門與公民社會互動的制度性架構，以提供台灣政府改造的政策建議。由理論層面而言，代議民主之中，以官僚體系成為管制及服務人民與公民社會的機關存在著實務性以及正當性的問題。近年來民主治理強調政府部門與公民社會彼此協調合作與依存互動，來體現民主政治的核心價值，更顯示有別於官僚體系的另類制度選擇，將較有於公民社會的健全發展。由實務政策而言，傳統上由政府制定管制政策與分配政策來影響人民行動與公民社會，但隨著政府角色的調整，政府從事管制與分配資源的型態與方式發生顯著變化。攸關保障弱勢族群與非主流價值的社會管制，以及在專業政策領域分配資源的行政型態愈顯重要，以往由民選官員制定及官僚體系執行政策的行政型態已然出現缺陷。相較之下，具有高度專業性與獨立性，而且在決策結構之中包含被管制（被服務）代表的非多數機構，更適合作為政府與公民社會的治理結構。本文列舉四個美國之與公民社會密切互動的非多數機構，並分析各自的制度特徵與運作經驗，並在本文的結語中，簡述台灣公民社會的形成背景，並為設計以台灣公民社會主體性的非多數機構提供政策建議，作為未來政府改造的規劃方向。

This article attempts to analyze the meaning, the characteristics and the rationale of non-majoritarian institution, to investigate non-majoritarian institution as the institutional framework for the interaction between government and civil society, and thereby to provide the Taiwanese Government with policy suggestions for reinventing government. Theoretically speaking, in a representative democracy, the bureaucracy supposed to provide regulation and services to people and civil society has created problems concerning its practicality and legitimacy. In recent years, democratic governance has emphasized the cooperation/coordination and the interdependence/interaction between government and civil society in order to realize the core value of democracy, and also to illustrate that the alternatives to bureaucracy could provide a healthier development of civil society. In terms of pragmatic policies, traditionally the government stipulates and implements the regulatory policies and distributive policies to affect the actions of the people and civil society. However, as the role of government modifies, the patterns and methods of the government regulates and distributes resource also experiences obvious changes. The social regulation protecting the interests of disadvantaged groups and non-mainstream values, and the administrative patterns in the distribution of resources in professional policy domain have become especially important. The flaws of the policies that were in the past stipulated by elected officers and regulated by bureaucracy have already been obvious. In comparison, the highly professional and independent nonmajoritarian institutions, in which the policy-making structure includes the administered/served parties, is more adequate to perform as a governance structure for government and civil society. This article lists 4 non-majoritarian institutions in the US with close interactions with the civil society, and analyzes the institutional characteristics and operation experience of each institution. In addition, this article will provide a description of the formation background of the civil society in Taiwan as well as the policy suggestions in the design of non-majoritarian institution based on the subjectivity of Taiwan civil society, thereby points out the direction for reinventing government in the future.