全球國防廉潔指數之兩岸比較研究

A Comparative Study between Taiwan and China in the Context of Government Defence Anti-Corruption Index

葛傳宇(Chuan-Yu Ko)

《公共事務評論》 16卷1期 (2016/12) Pp. 51-71

摘要

國際透明組織下轄之國防與安全小組（TI-DSP）是全球迄今(2016)唯一從事各 國國防透明度與貪腐風險評估之非政府組織，其首度在2013 年公布全球82國之政府國防廉潔指數（Government Defence Anti-Corruption Index，以下簡稱GDAI）。兩年後（2015）第二度公布全球115 國之評比結果。台灣在2013 與2015 兩次評比均居B 級，意即國防貪腐風險低（low）。中國則被評為D-級（2013）與E 級（2015），分別代表國防貪腐風險高（high）與非常高（very high）。兩岸軍事實力相差懸殊，乍看之下似無可比較，但是鑒於兩岸自1949 年以來長期軍事對峙狀態尚未結束，雙方軍事貪腐風險將直接影響透明度與課責，進而影響亞太區域和平。因此，本文進行兩岸國防透明度評比之比較，具有實務上的必要性並在政策上可供兩岸決策者省思。本文作者長期關注國防廉政建設並投入GDAI 之實務倡議，對於該廉政績效評估與指標建立之參與頗深。本研究運用文獻分析法與深度訪談等質化研究方法，首先論述GDAI 在全球治理視野下之重要性，其次分析台灣與中國在兩次GDAI 評比的強項與弱項（分為5 構面共29 項貪腐因子）。繼之以運用跨國比較模式，最後就兩岸在國防反貪治理模式進行比較分析進而提出建議。本文發現既有的公開資料無法確實揭露中共解放軍的客觀數據，在此高度不透明的環境中。因此中國在GDAI 之兩次評比等級似乎未必能反映其真實現狀。然而就現有公開資料進行的評比可發現，解放軍在採購與軍事行動等兩構面的貪腐風險最高，其17 個題項零分代表有高度貪腐風險可能性。反觀台灣雖然在政策面的預算項目相對公開透明，但在採購構面的貪腐風險亦值得重視。基於同儕競爭效應，推動兩岸甚至亞太區域各國國防透明度具有政策上的重大意義，尤其可以藉由提升透明度與降低國防貪腐風險，避免周邊國家誤判或誤解，進而促成區域和平。

關鍵字

國防廉潔指數 ； 貪腐 ； 台灣 ； 中國 ； 同儕競爭

並列摘要

Transcendency International, an NGO, publishes the only index assessing global defense transparency and corruption risks. Its Government Defence Anti-Corruption Index(GDAI) ranking 82 countries in 2013 and 115 countries in 2015 respectively. While Taiwan was ranked band B(low defense risks) consecutively, China was D-(high defense risks) in 2013 and E (very high defense risks) in 2015. Considering the long-standing military tension across the Taiwan Straits, military corruption on both sides can and will jeopardize the peace and stability of Asia Pacific. The author compares and contrasts the defense transparency between Taiwan and China so as to generate the practical policy recommendations for decision makers. Based on the research and advocacy on defense corruption over the past five years, the author applies literature review and in-depth interview in this article to first summarize the importance of global governance and defense corruption, and then analyzes the strengths and weaknesses of Taiwan and China in five dimensions of the GDAI. A anti-corruption model comparison was presented and followed by policy recommendations. This article finds that current publicly-available information can not accurately disclosed Chinese PLA objective data. The ranking and scoring of the GDAI does not necessarily reflect China's reality. Nonetheless, the PLA was scored 0 in 17 out of 77 questionnaire mainly across the operation and procurement dimensions. On the other hand, Taiwan also scored low in procurement while its defense budget is relatively open and transparent. Promoting defense transparency, as a result of peer competition, across Taiwan Straits serve the interests of all parties in Asia Pacific for the sake of avoiding miscalculation and ultimately contributing to the regional peace and stability. Building a minimum standard of defense transparency among Asia Pacific countries seem necessary in the long run.

並列關鍵字

Government Defence Anti-Corruption Index ； corruption ； Taiwan ； China ； peer competition