政府與非營利組織之夥伴關係--以復康巴士委辦方案為例

A Study on Public-Private Partnership of Fu-Kang Bus Service Program.

蔡玲君(LING-CHUN TSAI)

指導教授 ： 蕭文高

朝陽科技大學/人文暨社會學院/社會工作系/碩士(2017年)

摘要

台灣近年來身障人數不斷攀升，公部門對於身障人士的權益亦日益重視，尤其在《身心障礙者權益保障法》大修後，身障者之權益更是不容忽視，而政府重視身心障礙者之社會參與也顯現出身心障礙者「行」的重要性及迫切性，在《身心障礙者權益保障法》第16條、第53條皆提到「交通工具應落實無障礙，以利於障礙者使用」。而政府也推出各項無障礙交通工具以利身障者使用，如低底盤公車、無障礙計程車、復康巴士等，而在這些無障礙交通工具中以復康巴士之使用率最高，因其便利性、便宜性等皆是服務使用者所偏好的交通工具。
在台灣大部分的政府單位皆會將復康巴士的業務委託私部門承辦，成為合作夥伴關係，但也延伸出一些問題，如承辦單位專業性問題、經費資源不足、從業人員管理、公私部門配合之理念及行政業務不同等問題，造成復康巴士委辦方案的合作困境，故本研究將以復康巴士委辦方案為例，探討公私部門間之夥伴關係，研究目的如下:
一、 瞭解政府與非營利組織在復康巴士委辦方案的運作模式及現況。
二、 以夥伴關係的觀點分析政府及非營利組織辦理復康巴士服務所遇到之困境。
三、 經由此研究之成果，提出相關政策與實務的建議。
本研究之研究對象以台中市、彰化縣、嘉義市、台南市等四縣市，公、私部門復康巴士委辦方案中承辦人員做為研究對象，在研究方法上採質性研究方法，而資料蒐集以深度訪談及公、私部門所提供之書面資料或是政府委辦之標案書等，作為研究之參考資料；在資料分析中，以主題分析法在看似散亂的資訊中尋找出主題，進而定義主題並加以分析。
在研究發現中研究者以公、私部門分類簡述:一、公部門所面臨困境如下:(一)承辦單位之專業性、配合度、服務品質有待商榷；(二)招標單位選擇性少；(三)復康巴士民眾捐車及營運費不成比例問題。二、私部門所面臨之困境如下:(一)政治因素干擾方案執行；(二)經費不足；(三)人員管理問題；(四)與公部門對於服務方案執行時服務理念、方式有衝突；(五)組織永續經營問題。三、關於公私部門之合作關係，雙方皆表示時而是夥伴關係、時而是官、民關係，但皆對於目前之夥伴關係表示良好，原因在於:(一)雙方有共同的目標；(二)雙方有良好的溝通管道如聯繫會報；(三)現今官僚體制不復以往；(四)互信、互敬；(五)長期合作的關係；(六)雙方認同合作關係。
經由以上研究發現，研究者針對公、私部門提出幾項建議:一、給公部門之建議:(一) 降低政治因素干擾方案運作；(二) 要馬兒好也要給馬兒吃飽；(三) 客觀看待客訴問題；(四) 對於標案的擬定應與承辦單位研討；(五) 為承辦單位開設委辦方案之專業訓練課程；(六) 放寬服務使用者區域使用之限制及補貼承辦單位相關費用；(七) 宣導民眾捐車與贈與營運費一樣重要；(八) 提升公部門承辦人員之權限及人力資源；(九) 政策須明確，福利規範考量需彈性；(十)將資源及資訊整合。二、給私部門的建議:(一)提升從業人員專業能力；(二) 以合理福利待遇留住人才；(三) 減少因客訴問題而影響夥伴關係的信任感；(四) 增加組織之對外資源聯盟；(五) 訂定嚴謹之組織規章。

關鍵詞:民營化、夥伴關係、復康巴士

關鍵字

民營化 ； 夥伴關係 ； 復康巴士

並列摘要

Abstract
With the increasing number of disabled population in Taiwan, the importance of the rights of the disabled is growing among public sector. After the major modification of People with Disabilities Rights Protection Act, the rights of disabled people have become more significant than ever. The government has put a focus on the social involvement of the people with disabilities, which shows the prominent and pressing need in better transportation. In People with Disabilities Rights Protection Act, both Article 16 and Article 53 mention that public transports should provide access-free transportation services for people with disabilities. To implement that, the government has launched various transports for the disabled, such as low-floor bus, access-free taxi, fu-kang bus, etc. Among these transports, fu-kang bus is the most frequently used due to its convenience and fair prices.
In Taiwan, most public sectors outsourced fu-kang bus service to private sectors. A partnership is formed; however, some problems come along. For example: the lack of professional skills of the commissioned party, the insufficient funds and resources, the poor management of the employees and the differences between the ideas and administrative operations of public and private sectors. All these problems have caused predicaments to the fu-kang bus commission; therefore, this research is going to review the partnership with the flowing objectives:
a. Understand the operation and current state of the commission of fu-kang bus between the government and NPOs.
b. Analyze the predicaments in fu-kang bus management from the perspective of the partnership.
c. Use the research results as suggestions to relevant policy and practice.
The subjects of this research are the fu-kang bus commissioned companies located in Taichung City, Changhua County, Chiayi City and Tainan City. This is a qualitative research composed of depth interviews, written materials from both public and private sectors and bid proposals of government commissions as references. In analyzing these materials, this research applies thematic analysis to set the theme among this seemingly chaotic information, and further analyzes after the theme is defined.
In this research, topics are divided and discussed by public and private sectors: I. The challenges faced by public sector: a) the proficiency, cooperativeness, and service quality of the commissioned party is questionable; b) the lack of options of bidding companies; c) the disproportion of donated fu-kang bus and operational cost. II. The challenges faced by private sector: a) the interference of political forces; b) the insufficient funds; c) the poor management of staff; d) the conflicts in ideas and operations with the public sector and e) the sustainable operation of the commissioned party. III. The partnership between the public and private sector can sometimes become government-people relations; however, both sectors agree that it’s so far so good because a) both sectors have a shared goal; b) there is a good communication channel, e.g. the coordination report; c) the bureaucracy is not as strict as before; d) they trust and respect each other; e) it’s a long-term partnership and f) it’s a partnership that mutually recognized.
Given the above findings, the researcher would like to bring a few suggestions to the public and private sectors. For public sector, a) cut back the political interference; b) provide sufficient funds and resources; c) handle customer complaints objectively; d) go through the details of the bid with the commissioned party; e) provide professional training programs for the commissioned party; f) ease the restrictions on area service and provide subsidy for the commissioned party accordingly; g) let the public know financial donation is just as significant as car donation; h) upgrade the accessibility and human power of the authority; i) implement clearly-defined policies with flexible benefits and j) integrate resources and information. For private sector, a) advance the level of proficiency of employees; b) keep the talents with reasonable incentives; c) mitigate the damage to the trust of partnership arisen from customer complaints; d) reinforce the organization’s external network and e) establish stringent articles of organization.

Keywords: privatization, partnership, fu-kang bus

並列關鍵字

privatization ； partnership ； fu-kang bus

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