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題名 公部門專案管理的協調之初探 ─以臺北市參與式預算提案為例
A Preliminary Study of Project Management in the Coordination of the Public Sector: The Case of Proposals of Participatory Budgeting in Taipei City
作者 張婷瑄
Jhang, Ting-Syuan
貢獻者 傅凱若
Fu, Kai-Jo
張婷瑄
Jhang, Ting-Syuan
關鍵詞 協調
參與式預算
主責機關
提案執行過程
Coordination
Participatory Budgeting
PM (Project Management in public sector)
Process of project implementation
日期 2018
上傳時間 17-Jul-2018 11:29:42 (UTC+8)
摘要 隨著公民民主意識抬頭，政府面臨政策議題日益複雜，再加上機關業務分工細緻，使得行政機關的協調工具成為影響政策執行過程的重要因素。在這樣的趨勢環境下，臺北市政府推動參與式預算制度試圖讓政府預算使用能更貼近民意需求，且為了讓提案執行更順暢，引進私部門專案管理的概念至參與式預算，為每一件提案指派主責機關，由該機關負責協調整體進度。換言之，機關間協調會影響到提案執行狀況。因此，本研究意旨在於探討主責機關執行臺北市參與式預算提案的協調過程，包含產生主責機關原則、影響機關間執行提案的協調因素以及可能的問題。
根據上述的研究目的，本文研究問題分為三個階段探詢機關執行提案的互動過程，第一為主責機關誕生，在協力初始階段，係以瞭解公部門運用專案管理的理念選擇主責機關的原則及該機關對於角色的認知；第二為經由協力互動過程分析影響機關間執行提案因素、協調合作形式；第三則從評估機制探究機關執行完畢結案的原因以及評估主責機關對於課責提案管理系統之想法。
為回應本研究目的與問題，本研究採用質性訪談方式，針對參與式預算制度提案之管理層級、主責機關以及協辦機關進行半結構式訪談模式，其中主責機關是依據三項變項來挑選， 包括資源多寡、組織層級及協調複雜度程度，從105-106年參與式預算134件提案中抽樣出8件提案，並以立意抽樣方式選擇協辦機關與管理單位各2位受訪者，總計本研究訪談12位參與式預算相關人員以瞭解提案執行過程。
從研究發現與結論得知，首先，在初始條件過程內，歸納出四項選擇主責機關考量因素並確立主責機關任務，並進一步將公部門的主責機關與私部門的專案管理進行比較，發現在初始、執行、監控以及結束的協力過程中存在差異性，且主責機關彈性空間小於私部門的專案管理；其次，互動過程中，研究發現在協調溝通、法規權責、機關自主以及資源配置等四項因素對於主責機關執行提案有所影響，其中法規權責因素是最為重要，並且本研究認為提案人的身分對於協調過程亦有所影響。另外，透過機關自主因素，得出主責機關與協辦機關協調形式為合作但獨立，然而主責機關與區公所則是合作且互助。再者，五項因素僅有信任度沒有足夠資料得以佐證機關間已建立信任關係。最後，結果與課責構面則將結案原因區分為三種類型：一般性結案、特殊性結案與例外性結案，並從研究結果分析提案管理系統發現此系統仍偏向研考管制，彈性小。
綜上，本研究的實務建議如下：一、主責機關業務量需分散化；二、主責機關機制彈性化，如彈性授權、提升提案管理系統管理彈性，盡量貼近私部門的專案管理理念；三、增加執行人員參與式預算的相關資訊，如預算認知；四、減少非必要之結案程序，提高結案程序的彈性空間。
Facing with more complicated policy issues and the needs of citizen participation, governments have to find an innovative channel and coordination methods to deal with these challenges. As participation budgeting (PB) becomes one of the trends around the world, Taipei government takes an active role and implement it in the city-wide scope to meet citizens’ needs. In order to achieve the goal of each project proposed in the PB process, the government introduces the concept of project management (PM) from private sectors. Since PB in Taipei covers city-wide issues, projects implementation sometimes need to involve inter-agency coordination. In order to accomplish every project, the Department of Civil Affairs in Taipei assigns the most relevant agency to take on the role of PM. That is the inter-agency coordination is the key factor to affect the project implementation. In consequence, the goal of this research aims to examine the role of PM in the coordination process of PB in Taipei, including the rules to select PM, the plausible factors to influence the coordination process among the agencies and figuring out the potential problems.
Therefore, the research questions are divided into three aspects. The first part is the initial stage, which aims to understand the role of PM in the public sector, the rules to select PM and its obligations. The second part is the interaction stage, which analyzes negotiation and coordinating types of PM as well as finds out the potential factors in the project implementation process. The third part is about outcomes and accountability stage focusing on the reasons resulting in PM to close the projects.
Based on the theoretical framework, this study uses a qualitative study to conduct a semi-structured interview. The interviewees are from the management level, the PM agency, and the support coordination agency of the PB. The sample selection of PM in this study is based on the amount of budget resources, the level of hierarchical structure and the complexity of inter-agency coordination. This study selects 8 out of 134 projects from the year of 2016 to 2017 PB projects. In addition, this study involves 2 interviewees from the support coordination agencies and two interviewees from the management level respectively. The total sample contains 8 projects and participants in the study interview.
This study find that the rules for selecting PM should be clear in the initial stage; however, the definition of PM is inconsistent between public and private sectors. In the interaction process, it can be seen that regulations and authority is the most significant factor than the other four factors in the research. Moreover, the roles of proposer (eg., borough chief) has influential influence toward negotiation. Furthermore, this research also finds that the relationship between PM and support coordination agency is cooperation but independent with each other. On the other hand, the relationship between PM and the district office shows cooperation and help each other. When considering the factor of trust among all five factors affecting negotiation, there is not sufficient evidence to prove mutual trust in the inter-agency coordination. Lastly, on the aspect of outcomes and accountability, the research demonstrates that the reasons to close the case could be categorized into three types including general closure, specific closure, and exceptional closure. The results show that there is less flexibility in the proposal management system, which is still followed the traditional evaluation management.
Based on this research findings, there are several suggestions for practical work:
At first, work division in PM should be well-organized, and current situation shows that the work division is overly dense for PM. Secondly, mechanism of PM should be more flexible. For example, adopting flexible authorization and enhancing the flexibility of proposal management system can be closer to the idea of project management in private sector. Thirdly, all participants should be informed and have more information about PB such as knowledge about budget. At last, it is necessary to reduce unnecessary procedure for case closure to adapt different circumstances.
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描述 碩士
國立政治大學
公共行政學系
104256009
資料來源 http://thesis.lib.nccu.edu.tw/record/#G0104256009
資料類型 thesis
dc.contributor.advisor 傅凱若zh_TW
dc.contributor.advisor Fu, Kai-Joen_US
dc.contributor.author (Authors) 張婷瑄zh_TW
dc.contributor.author (Authors) Jhang, Ting-Syuanen_US
dc.creator (作者) 張婷瑄zh_TW
dc.creator (作者) Jhang, Ting-Syuanen_US
dc.date (日期) 2018en_US
dc.date.accessioned 17-Jul-2018 11:29:42 (UTC+8)-
dc.date.available 17-Jul-2018 11:29:42 (UTC+8)-
dc.date.issued (上傳時間) 17-Jul-2018 11:29:42 (UTC+8)-
dc.identifier (Other Identifiers) G0104256009en_US
dc.identifier.uri (URI) http://nccur.lib.nccu.edu.tw/handle/140.119/118705-
dc.description (描述) 碩士zh_TW
dc.description (描述) 國立政治大學zh_TW
dc.description (描述) 公共行政學系zh_TW
dc.description (描述) 104256009zh_TW
dc.description.abstract (摘要) 隨著公民民主意識抬頭，政府面臨政策議題日益複雜，再加上機關業務分工細緻，使得行政機關的協調工具成為影響政策執行過程的重要因素。在這樣的趨勢環境下，臺北市政府推動參與式預算制度試圖讓政府預算使用能更貼近民意需求，且為了讓提案執行更順暢，引進私部門專案管理的概念至參與式預算，為每一件提案指派主責機關，由該機關負責協調整體進度。換言之，機關間協調會影響到提案執行狀況。因此，本研究意旨在於探討主責機關執行臺北市參與式預算提案的協調過程，包含產生主責機關原則、影響機關間執行提案的協調因素以及可能的問題。
根據上述的研究目的，本文研究問題分為三個階段探詢機關執行提案的互動過程，第一為主責機關誕生，在協力初始階段，係以瞭解公部門運用專案管理的理念選擇主責機關的原則及該機關對於角色的認知；第二為經由協力互動過程分析影響機關間執行提案因素、協調合作形式；第三則從評估機制探究機關執行完畢結案的原因以及評估主責機關對於課責提案管理系統之想法。
為回應本研究目的與問題，本研究採用質性訪談方式，針對參與式預算制度提案之管理層級、主責機關以及協辦機關進行半結構式訪談模式，其中主責機關是依據三項變項來挑選， 包括資源多寡、組織層級及協調複雜度程度，從105-106年參與式預算134件提案中抽樣出8件提案，並以立意抽樣方式選擇協辦機關與管理單位各2位受訪者，總計本研究訪談12位參與式預算相關人員以瞭解提案執行過程。
從研究發現與結論得知，首先，在初始條件過程內，歸納出四項選擇主責機關考量因素並確立主責機關任務，並進一步將公部門的主責機關與私部門的專案管理進行比較，發現在初始、執行、監控以及結束的協力過程中存在差異性，且主責機關彈性空間小於私部門的專案管理；其次，互動過程中，研究發現在協調溝通、法規權責、機關自主以及資源配置等四項因素對於主責機關執行提案有所影響，其中法規權責因素是最為重要，並且本研究認為提案人的身分對於協調過程亦有所影響。另外，透過機關自主因素，得出主責機關與協辦機關協調形式為合作但獨立，然而主責機關與區公所則是合作且互助。再者，五項因素僅有信任度沒有足夠資料得以佐證機關間已建立信任關係。最後，結果與課責構面則將結案原因區分為三種類型：一般性結案、特殊性結案與例外性結案，並從研究結果分析提案管理系統發現此系統仍偏向研考管制，彈性小。
綜上，本研究的實務建議如下：一、主責機關業務量需分散化；二、主責機關機制彈性化，如彈性授權、提升提案管理系統管理彈性，盡量貼近私部門的專案管理理念；三、增加執行人員參與式預算的相關資訊，如預算認知；四、減少非必要之結案程序，提高結案程序的彈性空間。		zh_TW
dc.description.abstract (摘要) Facing with more complicated policy issues and the needs of citizen participation, governments have to find an innovative channel and coordination methods to deal with these challenges. As participation budgeting (PB) becomes one of the trends around the world, Taipei government takes an active role and implement it in the city-wide scope to meet citizens’ needs. In order to achieve the goal of each project proposed in the PB process, the government introduces the concept of project management (PM) from private sectors. Since PB in Taipei covers city-wide issues, projects implementation sometimes need to involve inter-agency coordination. In order to accomplish every project, the Department of Civil Affairs in Taipei assigns the most relevant agency to take on the role of PM. That is the inter-agency coordination is the key factor to affect the project implementation. In consequence, the goal of this research aims to examine the role of PM in the coordination process of PB in Taipei, including the rules to select PM, the plausible factors to influence the coordination process among the agencies and figuring out the potential problems.
Therefore, the research questions are divided into three aspects. The first part is the initial stage, which aims to understand the role of PM in the public sector, the rules to select PM and its obligations. The second part is the interaction stage, which analyzes negotiation and coordinating types of PM as well as finds out the potential factors in the project implementation process. The third part is about outcomes and accountability stage focusing on the reasons resulting in PM to close the projects.
Based on the theoretical framework, this study uses a qualitative study to conduct a semi-structured interview. The interviewees are from the management level, the PM agency, and the support coordination agency of the PB. The sample selection of PM in this study is based on the amount of budget resources, the level of hierarchical structure and the complexity of inter-agency coordination. This study selects 8 out of 134 projects from the year of 2016 to 2017 PB projects. In addition, this study involves 2 interviewees from the support coordination agencies and two interviewees from the management level respectively. The total sample contains 8 projects and participants in the study interview.
This study find that the rules for selecting PM should be clear in the initial stage; however, the definition of PM is inconsistent between public and private sectors. In the interaction process, it can be seen that regulations and authority is the most significant factor than the other four factors in the research. Moreover, the roles of proposer (eg., borough chief) has influential influence toward negotiation. Furthermore, this research also finds that the relationship between PM and support coordination agency is cooperation but independent with each other. On the other hand, the relationship between PM and the district office shows cooperation and help each other. When considering the factor of trust among all five factors affecting negotiation, there is not sufficient evidence to prove mutual trust in the inter-agency coordination. Lastly, on the aspect of outcomes and accountability, the research demonstrates that the reasons to close the case could be categorized into three types including general closure, specific closure, and exceptional closure. The results show that there is less flexibility in the proposal management system, which is still followed the traditional evaluation management.
Based on this research findings, there are several suggestions for practical work:
At first, work division in PM should be well-organized, and current situation shows that the work division is overly dense for PM. Secondly, mechanism of PM should be more flexible. For example, adopting flexible authorization and enhancing the flexibility of proposal management system can be closer to the idea of project management in private sector. Thirdly, all participants should be informed and have more information about PB such as knowledge about budget. At last, it is necessary to reduce unnecessary procedure for case closure to adapt different circumstances.		en_US
dc.description.tableofcontents 表目次 IX
圖目次 X
第一章 緒論 1
第一節 研究背景與動機 1
第二節 研究目的與問題 4
第三節 研究流程 7
第二章 文獻回顧 9
第一節 協調合作相關概念 9
第二節 參與式預算 29
第三節 專案管理 34
第三章 研究設計 41
第一節 個案介紹 41
第二節 研究對象及範圍 44
第三節 研究架構 57
第四節 研究方法 60
第五節 研究倫理 61
第四章 主責機關之誕生 62
第一節 指定主責機關 63
第二節 主責機關角色任務 73
第五章 機關互動協調合作過程的因素分析 76
第一節 溝通協調 76
第二節 法規權責 86
第三節 機關自主 94
第四節 資源配置 98
第五節 信任度 112
第六章 機關執行提案結果與課責 115
第一節 結案評估 115
第二節 成果追蹤系統－提案管理系統 118
第七章 結論 121
第一節 研究發現 121
第二節 實務建議與學術貢獻 137
第三節 研究限制與未來建議 141
參考文獻 144		zh_TW
dc.format.extent 3081724 bytes-
dc.format.mimetype application/pdf-
dc.source.uri (資料來源) http://thesis.lib.nccu.edu.tw/record/#G0104256009en_US
dc.subject (關鍵詞) 協調zh_TW
dc.subject (關鍵詞) 參與式預算zh_TW
dc.subject (關鍵詞) 主責機關zh_TW
dc.subject (關鍵詞) 提案執行過程zh_TW
dc.subject (關鍵詞) Coordinationen_US
dc.subject (關鍵詞) Participatory Budgetingen_US
dc.subject (關鍵詞) PM (Project Management in public sector)en_US
dc.subject (關鍵詞) Process of project implementationen_US
dc.title (題名) 公部門專案管理的協調之初探 ─以臺北市參與式預算提案為例zh_TW
dc.title (題名) A Preliminary Study of Project Management in the Coordination of the Public Sector: The Case of Proposals of Participatory Budgeting in Taipei Cityen_US
dc.type (資料類型) thesisen_US
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dc.identifier.doi (DOI) 10.6814/THE.NCCU.PA.002.2018.F09-