公、私部門如何協力：新北市公共托育中心制度的推動與協力治理

Collaborated by Public and Private Department：The Promotion and Collaborated Management for Public Nursery Center System of New Taipei City

陳佩吟(Pei-Yin Chen)

指導教授 ： 呂建德

國立中正大學/社會科學院/社會福利學系/碩士(2015年)

摘要

摘要
少子化影響下，各國紛紛推出正式托育照顧政策來緩解家庭與工作的兩難，2002年巴塞隆納高峰會更明確制定目標「排除對女性的不利因素，使其能積極參與勞動市場，採國家模式來提供兒童托育設施，2010年未滿三歲嬰幼兒覆蓋率達33%」(European Council, 2002)，顯示公共投入正式托育的重要性，然而公共化不必然等於公立化，有研究表明非公立機構可以提供的品質較好。反觀台灣托育結構是相當家庭化和市場化，未滿3歲的正式托育服務覆蓋率極低，亟需要政府介入平衡市場以增加工作父母選擇。2011年新北市利用政府閒置空間改建推出公共托育中心，大排長龍的後補現象，顯示正式托嬰供不應求，托育議題已成為政府及社會關注的焦點。因此，欲透過歸納新北市辦理公共托育中心經驗之分享，減低其他地方政府辦理門檻，使公托更加完善、增加普及性和可及性。本研究目的有：1.瞭解新北市政府辦理公共托育中心的過程。2.分析政府和不同型態非營利組織協力治理公托的互動關係。3.歸納經驗，對欲投入公托的地方政府就協力相關問題提出可行建議。
推動開辦期的分析結果：政府委外主要基於財源不足、正式人力編制困難、責任風險分攤。非營利組織參與則考量：機構理念的趨使、特殊組際利益、過往的信任關係。在開辦準備過程，從尋找閒置空間、招標評選、改建立案到人員配置與進用，細節的眉眉角角很多，最需要掌握的技巧有二，1.跨機關須「權力」以赴：閒置空間協調橫跨局處，須上位者「權力」帶領，展一條編行政效率。2.招標評選資格分兩階段：第一階段招標資格構成限制因素，第二階段訂立指標依採購法評選。
分析互動期的分析結果：在管制領域為1.柔軟的高密度管理策略2.互動關係移轉—非營利組織淡化3.公托中心間的結盟；財務面有1.產後獨立的財務關係2.有限的財務支援；服務輸送面1.陳情兩樣情2.特殊家庭收托設計3.平價不廉價的照顧服務矛盾；政治面--目的的互動。
未來規劃之政府分析有：1.以人口分佈為在地需求的設置理念2.提高弱勢家庭收托比率3.偏鄉設置首發展公共親子中心，次考量區域聚集。非營利組織再承接因素，合作時間拉長後主要還是經費問題，次要諸如場地、人力、訓練等。公托中心未來規劃：1.多元發展親子館，提高社區使用率2.改善托育工作環境，減少職業傷害。非營利組織子類型的分析，則僅有學校類較特別外，社團、社團法人、財團法人與政府互動差異小。
本研究依據分析結果對地方政府營運上提出五點建議：1.考量年資修正薪級表2.合併修正評鑑機制3.將行政人員保母化，減緩師生比壓力4.建立評鑑獎勵機制5.完善合作的退場機制。建置上的建議：1.跨組織合作--滿招時銜接保母系統，兩足歲銜接教育部，增加服務使用數2.緩解都會區托育需求後，建議偏鄉地區採複合式經營。對中央的建議：1.訂定能回應需求的具體政策目標2.專款計畫供給地方穩定財源。

關鍵字

公共托育中心 ； 非營利組織 ； 公私協力夥伴關係 ； 公辦民營 ； 托嬰中心

並列摘要

Abstract
Under the impact of declining birthrate, many countries launch the official nursery pol-icy to relieve the difficulties of family and work. In 2002, Summit in Barcelona precisely established the target, “Member States should remove disincentives to female labour force participation and strive, taking into account the demand for childcare facilities and in line with national patterns of provision, to provide childcare by 2010 to at least 90% of children between 3 years old and the mandatory school age and at least 33% of children under 3 years of age” (European Council, 2002). It shows the importance of public investment for formal nursery. However, to be popular is not exactly to be “public”. Some researches state clearly that non-public organizations can provide better quality, because those organizations can react quickly about the demand changes of people. The collaboration between public and private organizations across departments can obtain complementary profits for two de-partments. The purposes of this study are: 1. To understand the process of the public nurse-ry center undertaken by New Taipei City Government. 2. To analyze the interaction rela-tionship between the government and the different type of non-profit organization in man-aging public nursery. 3. To sum up the experiences and provide proper suggestions for relat-ed issues.
Analysis of the results with regard to the promotion of start-up period: Outsourcing is because lack of government financial resources, the difficult formal establishment for man-power and liability risk sharing. The considerations of non-profit organization participation are: the concept and mission of organization, special benefit among groups, and past trust. In the process of start-up preparation, in the beginning, to find free space, tender invitation and qualification, reconstruction and place a case on file, staffing and hire, many details must be noted. There two main skills required. 1. The “authority” across organizations is needed. The coordination across bureaus and offices for free space must be led by the “Head” with “Authority” to show a series of administrative efficiency. 2. There are two phases for tender invitation and qualification: The first phase is the tender qualification with limitation; the second phase is to establish the target for qualification in accordance with Procurement Act.
The results of the analysis for the interaction period：in the regulated field are:
1. gentle but intensive management strategy 2. interaction transferring —non-profit organization slackening 3. alliance among public nursery centers; regarding financial affairs: 1. postpartum, independent and financial relations 2. limited financial support; with regard to service and transmission: 1. petitions for different situations 2. care design for special family 3. parity but not cheap care service contradictions; regarding politics – the interac-tion of goal.
Analysis of governmental projects for the future are: 1. the set up concept for local demand with population distribution 2. increase care ratio for vulnerable family 3. Set up the first public parent-child center in rural area, regional aggregation as the second consid-eration. The factors of non-profit organizations to undertake again, longer cooperation time is still because of financial problems, the secondary factors are like, place, manpower and training etc. The future plans of public nursery centers are: 1. parental hall pluralism, in-creasing community usage ratio; 2. improve the work environment of nursery and decrease occupational injuries. Subtype analysis of non-profit organization, only school type is spe-cial, the interaction difference between association, corporation, juridical person and gov-ernment is small.
The suggestions about local government operations are made according to the analysis results in this study: 1. considering seniority to amend salary scale 2. merging and amend-ing evaluation system 3. Let administrative staff to be ‘baby-sister’, slow down teacher-student ratio pressure 4. the establishment of evaluation and incentives system 5. to perfect the ending system for cooperation. The suggestions for establishments: 1. The co-operation across organizations – the convergence system(baby sister) is built when the capacity is full; when the children are two years old, the convergence system is connected to Ministry of Education, and the number of service usage is increased. 2. After relieving the demand of metropolitan area for nursery, complex operations for rural areas are suggested. The sugges-tions for central government: 1. To establish the concrete policy and objective for the de-mand. 2. Earmarked fund project for local to stabilize financial resources.

並列關鍵字

Undertaken by the government and operated by private organizations ； public nursery center ； Non-profit organization ； Public-private partnership ； nursery center

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