府會對議員小型工程配合款認知差異之「二階觀察」－以南投縣政府八十八年度預算案之爭議為例

現行各地方政府財政困窘已是不爭的事實，而為數不少的地方民代小型工程配合款的編列，易使地方財政問題更形雪上加霜；另一方面，此項於法無據卻行之多年的慣例，亦常與人有選舉「綁樁」或收取不法回扣等負面意義的聯想。於是，向以財經專家自許的彭百顯在其就任南投縣縣長之後，便以回歸體制及統籌運用為由，在其首編的八十八年度預算案中，即停編此項議員小型工程配合款；此舉引發議會強烈的反彈並以預算杯葛作為回應，使的最後彭百顯仍不得不放棄其專業考量，以妥協恢復議員小型工程配合款來交換預算的過關。根據盧曼自我再製系統理論的觀點，當行政系統與議會系統各為一個自我再製的系統時，行政系統將難以藉由政策的改變對議會系統加以調控。因此，本文係站在一個「二階觀察」的角度及立場來分析，行政系統及議會系統對議員小型工程配合款的認知，將因彼此的歷史脈絡、角色立場以及環境背景的不同，而有全然不同的觀點及看法；而此種認知差異，難以藉由溝通來達到共識。以本案為例，行政系統欲藉由政策的改變使議員小型工程配合款能夠回歸行政體制運用的作法，卻未考量議會系統的立場以及忽略了南投縣歷年「以和建縣」的政治文化傳統，導致最後終歸失敗；而這也說明了自我再製系統具有難以調控的特性。此時，行政系統應以尋求府會間「相互理解」的溝通以化解僵局。　　而藉由本案例的說明，給了我們一個非常重要的啟示：任何政策的推行或行政的改革，絕不可一味地僅以其所謂的理性、專業為唯一的考量，而忽略了施行對象的立場及心裡；亦即執政者應體認任何政策推行的成敗關鍵，不在革新者，而在採用者，換句話說，改革方案的理念固然重要，但是受改造系統的意願動機與配合順從，才是政策推行成敗與否的關鍵。

關鍵字

盧曼；自我再製系統；二階觀察；議員小型工程配合款；彭百顯；南投縣政府

並列摘要

Currently, every local government is experiencing financial predicaments, and numerous budgets listed for small-scale engineering matching grant for councilors are likely to worsen the financial crisis. Besides, this long-existing but legally groundless convention is usually associated with negative meanings, such as "exchange of profit for support in the election” or acquisition of illegal kickbacks. Therefore, after Perng Bae Shean, who had always claimed to be a financial expert, took office as the magistrate of Nantou County, he stopped listing the budget for small-scale engineering matching grant for councilors in the 1999 Budget for the reasons of returning the budget to the system and total utilization of the budget. This action aroused strong oppositions in the council and councilors also responded with boycotts on the passing of the annual budget. At last, Perng was forced to sever his professional consideration and compromise to re-list the budget in exchange of the annual budget. According to the notion of autopoietic system proposed by Niklas Luhmann, when the administrative system and the parliamentary system are two independent autopoietic systems, it is hard for the administrative system to control the parliamentary system through change of policies. Thus, this study was based on the viewpoint of second-order observation. The cognitions of the administrative system and the parliamentary system for the small-scale engineering matching grant for councilors would differ due to the differences in historical development, roles / standpoints, and environments / backgrounds. This kind of cognitive difference could hardly be resolved through communication. In this studied case, the administrative system attempted to use the change of policies to retrieve the grant for councils for the utilization of the administrative system disregarding the standpoint of the parliamentary system and the political culture of Nantou County – “establishing the county in harmony”. This was the reason of the final failure. However, this also explained the hard-to-control feature of the autopoietic system. Meanwhile, it would be necessary for the administrative system to seek “mutual understanding" between the county government and the county council to resolve the impasse. 　　This case study provided an important message: the promotion of any policy or any administrative reform cannot be solely based on the so-called rational and professional consideration and neglect the standpoint and psychology of the affected or involved subjects. In other words, rulers should be aware that the key to the success or failure of a new policy is not the reformer but the adopter. The idea of a reform is important, but the willingness, motivation, and compliance of the system to be reformed are critical to the success or failure of the new policy.

並列關鍵字

Niklas Luhmann ； autopoietic system ； second-order observation ； small-scale engineering matching grant for councilors ； Perng Bae Shean ； Nantou County Government