從國家與社會關係析論ECFA簽訂之議程設定模式

The Study of ECFA's Agenda Setting Model: A State and Society Perspective

林士清(Shih-Ching Lin)

指導教授 ： 丘昌泰

國立臺北大學/公共事務學院/公共行政暨政策學系/碩士(2011年)

摘要

重大政策的成敗，決定政權的存續與盛衰，一國政權存續更衝擊區域政治的結構，國家機關不會傻呼呼地坐以待斃，無論依其政治目的或經濟目的，國家機關需要與不同的社會組織相互合作，透過政策社群在政策過程中的角色，發展其應變的策略。職此，ECFA的政策緣起，究竟是政府在市場面前低頭，任由經濟主導而被迫「放手」的無奈？抑或政府有意介入市場，重新詮釋政治主導「收手」的意圖？其實觀乎議程設定的認識，議題發展與政策過程中，探討國家能力介入的範疇和手段的限度問題。

ECFA從一項公共議題演化為解決問題方案的政策分析，歷經議題邁入議程的啟動期、明確期、擴散期及進入期，國家機關發展策略在議程設定的操控中，乃具有影響社會組織、規範社會關係、集中國家資源，並能夠將自身意志轉化為現實之能力，藉由ECFA簽署的議程設定模式之觀察，探討大陸經貿政策的軌跡變化，涉及國家機關與社會權力關係的制度性安排，從ECFA的議程設定模式的驅動力中，國家機關的發展能力與政治精英對政策議題理念及政策社群對ECFA的共識程度，乃扮演最主要的角色。

本文透過議程設定理論及其模式，認為內生模式較能捕捉台灣歷經威權轉型至民主鞏固的脈絡下，國家與社會彼此由從屬演變為平行互惠的關係，此一模式特別著重由國家機關的發展策略，透過政策社群在議程操控的能力展現，將ECFA的政策利害關係人之社會取予以相對制度化，並透過政治過程而減低衝突的程度。最後從ECFA的個案分析中，國家機關（獅子）窮盡全力，也要爭取大陸經貿政策的至高點（兔子），背後仍舊顯現國家（君）終究要凌駕社會（天下）之姿態。

關鍵字

議程設定 ； 兩岸經濟合作架構協議（ECFA） ； 內生模式 ； 政策社群

並列摘要

The success or failure of one important policy would determine the continuance or ups and downs of a regime. The continuance of a national regime would heavily affect the infrastructure of local politics. Governmental organizations will not just sit there and do nothing like a sitting duck. Governmental organizations require the mutual cooperation with different social organizations and develop its own consistency strategies via the role the policy community plays in policy process, regardless of their political and economical goals. Should ECFA's new policies let the economy guided by a "free hand" and bend to the will of the market? Should the government intentionally interferes and redefines the market with guiding policies to "secure" the future of the economy? In order for us to explore the level of influence and method of approach to the market that the government should exert we will need to understand of the observance to the agenda setting, topic development and policy progression.

ECFA evolved from a public issue to a policy analysis of problems solving. It went through four different stages including initialization, defining, diffusion and incorporation stages before it turned from an issue to an agenda. The development strategies in governmental organizations are under control of agenda setting, which possess the ability to influence social organizations, standardize social relationships, centralize national resources, and to turn its will to reality. By observing on the agenda setting pattern of ECFA, we can discuss the trail change of economic and trade policies in China, which concerned with the institutional arrangement of national organizations and social power relations. The development capacity of national organizations, the ideas those political elites have toward policy issues, and levels of consensus those policy social groups possess on ECFA play the major role under the mobilization of the agenda setting of ECFA.

This article, via the theory of agenda setting and its patterns, argues that inside initiative model could better capture the relationship between state and society transformed from being subordinate into reciprocity under the context of Taiwan’s paces from authoritarian rule to democracy. This model especially emphasizes on development strategies in governmental organizations, it comparatively institutionalizes the social orientations of related policy stakeholder of ECFA, and also reduce conflicts via political process. Lastly, from the case analysis of ECFA, any national organization (the lion) would fight for the pitch of economic and trade policies in China (the rabbit) with all possible resources, and what it reveals behind is the posture that a state (monarch) is still in control of the society (the world).

並列關鍵字

Agenda Setting ； Economic Cooperation Framework Agreement(ECFA) ； Policy community ； Inside Initiative Model

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