臺灣鐵路國營公司化法律問題之探討

在我國公營事業不斷發展，國家的擔保責任與各種行政任務使其組織與業務日益龐雜，而使得經營上逐漸缺乏競爭力的過程中，掀起了一波改革的風潮，而其中目前續存者，多係將各該原國營事業機關（構）進行公司化改造，乃至於行民營化改革之，以追求經營上的效率；而此等改革在於降低公部門之角色，降低其干預與影響，增加私部門角色，並解除市場管制，藉由自由競爭機制以促進經濟，而有益於民主政治之發展。　　臺鐵作為我國重要之鐵路客貨運運輸服務，其百餘年之歷史是資產，但同時也不斷累積各項問題而造成營運上的諸多困境，臺鐵局於1970年代起所研議、探索的各種革新可能，在各該時任政府政策之限制與策略，以及臺鐵內部工會與其員工的反彈抗爭下，組織與經營上雖有不同程度的變化，但本質上仍不脫科層體制下之國營事業機關（構）的結構與文化，其營運策略、資產財務、人事運用、政策負擔與組織問題依舊存在。　　在「普悠瑪」與「太魯閣」事故後，藉著社會輿論之意向可用，「國營公司化」的組織與營運改革計畫再次浮出檯面，儘管勞資雙方多有折衝，但在「公司化條例」──即《國營臺灣鐵路股份有限公司設置條例》制定施行下，臺鐵局正式轉型成為國營臺鐵公司，其組織改造後，達成「彈性－分權－效率」之目標，並在採行「合議制決策機構」與「首長制執行機構」之下，藉由「營運採取分段制」的方式，降低通報路徑與強化橫向聯繫，並消除「雙重領導」問題，增加營運效率；並在「人事進用鬆綁，人事制度一元化」、「強化分支機構經營效能，並給予其分公司資格」、透過「交通作業基金清償臺鐵局債務」、給予「法令與租稅優惠」等方面進行革新，而與原本交通部之部屬機關有所不同。在其所受監督與安全部門運作上，採取「交通部（及所屬鐵道局）為行政監督」與「運安會行獨立公正調查」之二元化；就安全部門方面，則在鐵路相關法令當中「增訂安全管理專章」並設置相關「法定安全機構」。本文對此有所探討。　　而臺鐵改採國營公司體制運作後，其「國營公司化」的組織改造方式上屬適切，惟僅應作為改革之起點；又臺鐵公司仍處於「廣義民營化」之「假民營化」狀態，雖有其固有缺陷，但仍對臺鐵之「業務經營與職能專業化」、「決策多元化與民主化」、「地方分權化」，以及「政府資源分配高效化」提供貢獻。其最終仍必須確保其接受市場競爭之有效監督、強化公司治理，避免政府過度干預臺鐵之經營，最終使這一間百年老店走向真民營化，再展風華。

關鍵字

臺灣鐵路；基本國策；公營事業；國家擔保責任；民營化；公司化

並列摘要

As state-owned enterprises in our country have expanded, the growing responsibilities of government guarantees and various administrative tasks have led to increasingly complex organizations and operations, resulting in a gradual loss of competitiveness and prompting a wave of reforms. Many of these reforms have involved the corporatization or privatization of state-owned enterprises to enhance efficiency. The goal is to reduce public sector involvement, minimize interference, increase private sector roles, and promote economic growth through free competition, which in turn supports democratic development. Taiwan Railways Administration, MOTC (TRA), with its century-long history, has accumulated various issues that have led to significant operational challenges. Despite various reform efforts since the 1970s, the TRA has remained a state-owned enterprise under a bureaucratic system, with ongoing issues in strategy, asset management, personnel, policy burdens, and organizational structure. In light of the “Puyuma” and “Taroko” incidents, public opinion has reignited the push for "state-owned corporatization" as a reform strategy. Despite extensive negotiations between labor and management, the enactment of the "Act for Estab-lishment of State-owned Taiwan Railway Co., Ltd" has officially transformed the TRA into a state-owned corporation. The organizational reforms were strategically designed to enhance "flexibility, decentralization, and efficiency." Key measures included the adoption of a " Divisional System " to streamline communication, improve coordination, and resolve "dual leadership" conflicts, thereby boosting operational efficiency. Additionally, significant reforms were implemented to relax personnel recruitment, unify personnel systems, enhance branch office effectiveness, and manage debts through the Transportation Operations Fund. The Corporation also benefits from legal and tax incentives, setting it apart from its previous status under the Ministry of Transportation and Communications. In terms of oversight, a dual structure was established, with the Ministry of Transportation and Communications providing administrative supervision and the Taiwan Transportation Safety Board (TTSB) conducting independent safety investigations, supported by newly established statutory safety institutions. This analysis delves into these critical developments. While the transition to a state-owned corporation represents an appropriate starting point for reform, it is merely the beginning. The Taiwan Railway Corporation remains in a state of "pseudo-privatization," a form of "broad privatization," which, despite inherent shortcomings, contributes to the "professionalization of business operations," "diversification and democratization of decision-making," "decentralization," and "efficient allocation of government resources." However, it is imperative to ensure that the Corporation is subject to effective market competition and enhanced corporate governance while preventing excessive government intervention in its operations. Ultimately, these measures should guide this century-old institution towards genuine privatization, enabling it to regain its former glory.