非工程專責機關辦理工程採購問題之探討-以一個中央社會福利機構為例

Conducting Construction Procurement in the Non-engineering Professional Institution: Case Study of a Central Social Welfare Division

廖妍庭(Yen-Tin Liao)

指導教授 ： 李玉君

國立暨南國際大學/人文學院/公共行政與政策學系/碩士(2023年)

https://doi.org/10.6837/ncnu202300013

摘要

工程採購是一項高度專業化之工作，承辦採購之人員如無專業之訓練與培養勢將無法勝任。然而，在實務運作上，並未強制規範辦理採購之人員，必須具備與採購類型相關的專業背景，因而往往存在非工程專責機關之一般行政人員被賦予執行公共工程採購之任務，承擔工程品質管理責任之現象。
本研究係以一個中央社會福利機構為例，探討非工程專責機關辦理工程採購之問題，其核心問題在於機構人力不足、經費及專業性不足。因此，機構相關採購人員面對採購各階段重點之事項與廠商間存在資訊之不對稱及資訊隱匿之情形，導致非工程專責機關辦理工程採購作業，對於工程相關資訊之蒐集往往有所不足。職此之故，本研究論文架構分為五大章節探討其衍生之問題。首先，第一章緒論部分，說明本論文之研究背景、研究動機與目的、研究問題與研究方法、章節安排，以及相關研究文獻之回顧。第二章主要是闡述政府採購制度之沿革、內涵與工程採購各作業階段，藉以闡明採購制度之精神與現行制度沿革及內涵，並鋪陳工程採購各作業階段管理重點。第三章則是透過衛生福利部工程施工查核小組，查核其所屬社會福利機構承辦工程採購之缺失態樣進行個案分析，探討其採購各作業階段所面臨之問題。第四章則是舖陳現行非工程專責機關辦理工程採購運作機制，嘗試尋找出可行之替代方案，解決無工程專業背景之非工程專責機關辦理工程採購時，力有未逮之感。第五章結論與建議。經由前述各章節之綜合彙整與分析，歸納出以下結論：
一、 非工程專責機關辦理工程採購呈現之問題包括：
（一） 缺乏專業人員或人力不足，影響採購效益及品質。
（二） 缺乏法律專業素養，誤解法規及契約含意。
（三） 缺乏工程專業背景，影響工程施工品質及效益。
二、 現行存在之替代方案與實務運作包括：
（一） 現行法規規範可能的替代方案：委託代辦(採購法第5條)、委託專案管理(採購法第39條)、共同供應契約(採購法第93條)、專業專責代辦(採購法第40條、第95條)。
（二） 現行實務運作代辦採購機制：國內以臺北市政府工務局聯合採購發包中心作為代辦機制運作之參考；國外部分則是參考美國政府採購制度，依採購權責承辦各階段之採購任務。

關鍵字

非工程專責機關 ； 公共工程 ； 工程採購 ； 工程品質 ； 政府採購

並列摘要

Engineering procurement is a highly specialized work. Competent engineering procurement personnel must receive professional training and education. However, in practice, it is not compulsively required that engineering procurement personnel must have experience related to procurement specialty. As a result, general administrative staff in non-engineering agencies are often assigned with public work procurement tasks and appointed to be in charge of engineering quality management.
This study takes a central social welfare institution as an example to discuss the issue of execution of engineering procurement by non-engineering agencies. The core issues lie in labor shortage and the lack of funds and expertise in these agencies. Therefore, procurement personnel and vendors are likely to obtain asymmetric and incomplete information about key matters in each phase. As a result, when non-engineering agencies execute engineering procurements, engineering information collection is deficient. To this end, this study discusses the issues that derive from it in five chapters. Chapter 1-Introduction describes the research background, research motives, research purposes, research issues and methods, structure of this paper, and literature review. Chapter 2 introduces the evolution and connotation of government procurement systems and operations in each engineering procurement phase. The chapter further specifies the spirit
of the procurement system and the evolution and connotation of current system, and to elaborate on the management key points in each engineering procurement phase. Chapter 3 provides case studies about the deficiencies identified by the engineering construction inspection team of the Ministry of Health and Welfare when inspecting the engineering procurement works executed by subordinate social welfare units, and discusses the issues encountered in each procurement phase. Chapter 4 elaborates on the operation mechanism for the execution of engineering procurement by non-engineering agencies, and attempts to identify feasible alternatives and address the issue of non-engineering agencies without engineering specialty experience feeling that it is beyond their reach to execute engineering procurements. In Chapter 5-Conclusions and Suggestions, this paper summarizes the following conclusions based on the discussion and analysis in the preceding chapters:
1. Execution of engineering procurement by non-engineering agencies shows the following issues:
(1) Lack of professionals or manpower, impairing procurement efficiency and quality.
(2) Lack of professional literacy in law, misunderstanding laws and rules, and contract implications.
(3) Lack of professional background in engineering, impairing engineering construction quality and efficiency.
2. Current alternatives and practices include:
(1) Possible alternatives for current laws and rules: agency (Article 5 of Government Procurement Act), commission of project management (Article 39 of Government Procurement Act), joint supply contract (Article 93 of Government Procurement Act), professional agency (Article 40 and 95 of Government Procurement Act).
(2) Current procurement agency mechanism: For Taiwan, the joint procurement contracting center of Public Works Department of Taipei City Government is used as a reference for the operation of agency mechanism. For foreign countries, the American government procurement system is used a reference where procurement tasks in each phase are executed based on procurement rights and responsibilities.

並列關鍵字

non-engineering agencies ； public work ； engineering procurement ； engineering quality ； government procurement

參考文獻

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