金融危機對台灣社會政策的衝擊：仍然是路徑依賴嗎？

Financial Crisis and Social Protection Reform in Taiwan: Path Dependence?

陳盈方(Ying-Fang Chen) ； 呂建德(Jen-Der Lue)

《社會政策與社會工作學刊》 16卷2期 (2012/12) Pp. 191-246

https://doi.org/10.6785/SPSW.201212.0191

摘要

2008／2009年受到美國次級房貸風暴之影響，全球面臨了嚴重的金融海嘯危機。台灣亦在此波危機中遭受嚴重的衝擊，不僅失業潮創下歷年新高，勞動市場亦掀起一波無薪休假潮，人民所得差距擴大、Gini係數增加、消費支出和儲蓄率減少，致使諸多勞工面臨就業、所得縮減與貧窮的風險。傳統悲觀論者、樂觀論者或是制度主義學者對全球化和金融危機下，福利支出的擴張和限縮有不同的看法。但多數研究早已喪失了國家角色在處理金融危機的治理能力之關注。因此，本文試圖將國家的角色帶回來，並探討台灣政府在此次危機中，其社會保障的回應策略為何？並檢討其社會保障因應措施，是延續或改變既有的制度規範，以及其改革方向是否能有效因應金融海嘯所帶來的衝擊，進而改變過去的生產性福利介入方式。然而，本文發現台灣政府在此次改革過程中，仍受限於過去的生產主義式福利提供模式，著重在經濟政策的介入，社會保障制度則次之。且這些介入方式和財政擴張卻是短暫的，並在後金融危機時期開始限縮，主要係受制於不斷攀升的舉債壓力。觀諸政策的成效，政府著重在刺激經濟成長的策略，受薪階級似乎無法享受到成長的果實：利用租稅來減少貧富差距的效果，卻10年來幾乎毫無變化。因而，政府於此次危機的角色，仍依循過去生產主義式的路徑依賴，並未產生制度轉型的現象，且短期利益的社會給付模式仍是現行社會政策發展的路徑。長遠來說，政府若不改變既有的社會福利介入模式，並積極思考技術結構轉型和建立完善的社會安全網之問題，將迫使人民的生活更不穩定。必須要有系統性與典範性的思考才能解決台灣福利結構性失衡的問題。

關鍵字

金融危機 ； 社會保障改革 ； 路徑依賴 ； 生產性褔利 ； 台灣

並列摘要

The financial crisis in 2008/2009 hit most of countries in the world. Taiwan also faced serious recession, such as high unemployment rate, increasing income inequality and poverty rate. A large number of workers were excluded from labor market and suffered poverty risk. Conventionally, efficacy theory and complementary approach hold opposite opinions about how the welfare state responses to globalization or financial crisis. However, they ignore that the state has the capacity of governance on social protection. In this article, we bring the role o f the welfare state back into analysis to elucidate how the Taiwanese government dealt with the 2008/2009 financial crisis. Was the reform a path dependence or a paradigm change? In conclusion, we find that social protect ion reform s in Taiwan were constrained by productivism. Economic growth will eventually lift people out of poverty. Thus, the government concentrated resources on the financial and bank sectors, but social protection received less attention. Although government expenditure expanded during the crisis period, it was temporary. After the crisis, the government cut social expenditure. Promoting economic growth and cutting tax did not have positive impacts on working class and income inequality. Although the income transfer programs helped to reduce income inequality in 2008/2009, the government is reluctant to further income transfer programs. Thus, we concluded that the welfare reforms did not transform the Taiwanese welfare state toward social investment welfare state, but still stuck to productivism. In the long run, the Taiwanese social security system will be not sufficient to protect people if the government does not overhaul the social security system.

並列關鍵字

financial crisis ； social protection reform ； path dependence ； productive ； Taiwan

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