Institutions, Social Capital, and Collaborative Leadership: Public-private Partnership in Natural Disaster Relief

制度、社會資本與合作領導－自然災害防治之公私協力架構

張其祿(Chyi-Lu Jang) ； 潘競恆(Ching-Heng Pan)

《中國行政評論》 14卷3期 (2005/06) Pp. 65-90

https://doi.org/10.6635/cpar.2005.14(3).03

摘要

自然災害的防治需能有效動員及整合來自公、私等各相關部門的資源，惟此種整合並非一蹴可幾，其不僅需有正式的建制與組織，更需非正式社會結構的輔助及配合。目前已有證據顯示，非正式的社會結構似乎在自然災害的防治過程中，正扮演著愈來愈重要的角色，特別是在正式組織於資源動員及整合時出現罅隙的情況下。此外，公、私部門對於自然災害的防治活動亦皆有其個別所面對的問題及限制。譬如，政府部門雖較易提供大規模的賑災行動與資金援助，但卻往往因官僚正式結構的僵化與惰性，而使得災害防治缺乏即時性與效率性。不過，另一方面以慈善、宗教救援組織，或以社區為基礎的災害防治活動，其雖較能迅速處理災難危機，但由於行動的分散與割裂，亦使災難防治的努力呈現事倍功半的狀況。因此透過制度分析的方式，本文將提出一個以公、私協力關係為基礎的自然災害防治整合架構。此一架構係以社會資本的理論與概念來增進自然災害防治工作的效率及效能，復以合作領導的方式來建構及鞏固社會資本與公、私部門間的協力合作關係。本文核心論述如下：第一，政府與其他非政府組織經常無法在自然災害的防治工作中發展出有效的合作協力關係，其原因多由於在合作制度上有著高昂的交易成本，例如合作契約機制的研擬、簽訂、執行與監督等問題；第二，交易成本問題的克服，需賴合作各方對彼此有更充分的資訊、信賴與網絡互動關係，因此社會資本即成為自然災害防治過程中，公、私協力關係能否有效形成的關鍵所繫；第三，合作領導是促成社會資本累積與形成的制度性平台，更是公、私兩部門防災資源協力統整的共同基礎。

關鍵字

制度 ； 社會資本 ； 合作領導 ； 公私協力 ； 自然災害

並列摘要

Large-scale disaster relief in the case of earthquake or hurricane involves various resources from public and private sectors. The usually hidden and oblivious informal social infrastructures emerge as crucial assets for relieving natural disasters that may paralyze regular functioning of formal institutions. Governments are more readily to provide financially and geographically far-reaching relieves, but they are also believed less time-efficient resulting from rigid rules of the formal system. Relieves from community-based or religious organizations are more responsive but oftentimes disjointed and less effort-efficient. Through institutional analysis, this paper offers a public-private partnership framework incorporating the concept of social capital to maximize the efficiency and effectiveness of disaster relief efforts, and proposes that collaborative leadership be the crucial link in developing the partnership. First, we argue that governmental and non-governmental organizations fail to develop partnerships because of the high transaction costs of arranging, monitoring, and enforcing a contracting institution. Second, whereas information is by no means costless to the contracting parties, social capital in the form of effective norms, strong civic engagement, active public-private networks, and high mutual trust all lead to lower costs of acquiring information and lower possibility of exerting costly punitive actions on frauds. Third, collaborative leadership may support to form the institutions that facilitate social capital accumulation by offering a common denominator to the two sectors, and hence advance partnership.

並列關鍵字

Institutions ； Social Capital ； Collaborative Leadership ； Public-Private Partnership ； Natural Disaster