公共管理者對於公私合夥風險的認知：調查與反思

Exploring the Public Manager's Perceptions of Risks in Public-Private Partnerships

10.30409/JPA.201112_(41).0001

曾冠球(Kuan-Chiu Tseng)；黃偉誠(Wei-Cheng Huang)

公私合夥 ； 風險評價 ； 風險配置偏好 ； 風險分擔 ； 促參 ； public-private partnerships ； risk ratings ； risk allocation preference ； risk sharing ； promotion of private participation

公共行政學報

41期（2011 / 12 / 01）

1 - 36

繁體中文

公共管理者如何看待公私合夥專案的風險？對於合夥過程中風險移轉與風險分擔有何偏好？「風險移轉」是公私合夥專案運作最重要的原則，但唯有透過良好的「風險配置」機制，方能成功地結合公、私部門雙方特質，否則將導致合夥專案成本的上升、延展工期，甚至失靈等後果。理論上，風險應該由最有能力管理一造承擔，但最適化的風險配置原則並不容易落實。除了客觀條件的權變與方法論上困難性外，政府當局本身尚須透過特定政策工具的支持，以落實「風險分擔」之責任。不過，此舉可能違反了公部門管理者的工作動機，也隱含從事這類循證分析的必要。根據上述文獻背景，由於公私合夥專案往往是由公部門加以發動，站在私部門角度，倘若未能洞悉公部門管理者風險配置的偏好，影響所及的是後續契約協商的成本，也會阻礙專案績效的達成。遺憾的是，過往台灣鮮少產出相關調查研究——風險移轉與風險分擔多停留在一些原則性討論。是以，方法論上，本研究主要藉由行政院公共工程委員會網站所公布的資料，進行公私合夥專案的公部門電話調查，初步呈現公共管理者對於這類專案風險的評價和風險分擔的認知，再針對此一調查發現，本研究也結合文獻分析與深度訪談資料，進行相關討論與反思，最後則對於未來研究方向提出一些建議。

How do public managers perceive the risks in public-private partnership (PPP) projects? What are their attitudes toward risk shifting and risk sharing during the collaboration? ”Risk shifting” is one of the key principals in operating PPP projects, only through a well-designed ”risk allocation” mechanism can we combine the distinct characteristics of the public and private sector. Otherwise, the PPP projects will inevitably face increased costs, postpone, and even failure. Theoretically, risks should be allocated to the party who can manage them well, however, it is uneasy to actualize the principal of optimal risk allocation. In addition to the environmental contingencies and methodological difficulties, government authorities, in order to take the responsibility of ”risk sharing”, have an obligation to support the private sector via utilizing certain policy tools. However, this may contradict the public managers’ work motivation, and which reveals that it is worth to conduct the evidence-based analysis. Against this research background, since PPP projects are often initiated by the public sector actor, the private sector actor has to grasp the public managers’ risk allocation preferences, and thus the transaction costs can be minimized and project performance can be enhanced as well. Unfortunately, to the author’s knowledge, the investigations regarding the topic of risk shifting and risk sharing in PPP projects in Taiwan are scarce. This research, methodologically, intends to focus on the public managers’ attitudes toward risks in PPP projects via phone investigation, and the related data was collected from the website of Public Construction Commission Exceutive Yuan. Our findings demonstrate the results of risk ratings and risk allocation preference in PPP projects especially from the angle of public sector. The implications are discussed in accordance to the literature and in-depth interviews, and the recommendations for future research are also provided.

1. 李宗勳(2004)。公私協力與委外化的效應與價值：一項進行中的治理改造工程。公共行政學報，12，41-77。
   連結：
2. 李柏諭(2005)。公私協力與社區治理的理論與實務：我國社區大學與政府經驗。公共行政學報，16，59-106。
   連結：
3. 汪明生、曾玉祥(2011)。地方建設BOT 治理模式之績效研究：治理結構之觀點。公共行政學報，38，49-73。
   連結：
4. 孫煒(2009)。兩千年政黨輪替之後政府與非營利組織關係的分析架構：民主化研究途徑。東吳政治學報，27(2)，47-86。
   連結：
5. Abednego, M. P.,Ogunlana, S. O.(2006).Good project governance for proper risk allocation in public-private partnerships in Indonesia.International Journal of Project Management,24,622-634.
6. Axelrod, R. M.(1984).The evolution of cooperation.New York:Basic Books.
7. Bing, L.,Akintoye, A.,Edwards, P. J.,Hardcastle, C.(2005).The allocation of risk in PPP/PFI construction projects in the UK.International Journal of Project Management,23,25-35.
8. Bloomfield, P.(2006).The challenging business of long-term public-private partnerships: Reflections on local experience.Public Administration Review,66(3),400-411.
9. Boeuf, P.(2003).Public-private partnerships for transport infrastructure projects.Paris:European Investment Bank.
10. Burnes, B.,Coram, R.(1999).Barriers to partnerships in the public sector: The case of the UK construction industry.Supply Chain Management,4(1),43-50.
11. Cooper, P. J.(2003).Governing by contract: Challenges and opportunities for public managers.Washington, D. C.:CQ Press.
12. Daley, D. M.(2008).Interdisciplinary problems and agency boundaries: Exploring effective cross-Agency collaboration.Journal of Public Administration Research and Theory,19,477-493.
13. Deci, E. L.,Ryan, R. M.(1985).Intrinsic motivation and self-determination in human behavior.New York:Plenum Press.
14. Edwards, P.,Shaoul, J.(2002).Partnerships: For better, for worse.Accounting, Auditing and Accountability Journal,16(3),397-421.
15. European Commission(2003).Guidelines for successful public-private partnership.Brussels:European Commission.
16. Forrer, J.,Kee, J. E.,Newcomer, K. E.,Boyer, E.(2010).Public-private partnerships and the public accountability question.Public Administration Review,70(3),475-484.
17. Goldsmith, S.,Eggers, W. D.(2004).Governing by network: The new shape of the public sector.Washington, D. C.:Brookings Institution Press.
18. Grimsey, D.,Lewis, M. K.(2004).Public-private partnerships: The worldwide revolution in infrastructure provision and project finance.Northampton, Mass:Edward Elgar.
19. Guasch, J. L.(2004).Granting and renegotiating infrastructure concessions-Doing it right.Washington, D.C.:World Bank.
20. Hackman, J. R.,Oldham, G. R.(1976).Motivation through the design of work: Test of a theory.Organizational Behavior and Human Performance,16(2),250-279.
21. Hodge, G. A.(Ed.),Greve, C.(Ed.)(2005).The challenge of public-private partnerships: Learning from international experience.Northampton, Mass:Edward Elgar.
22. Hodge, G. A.,Greve, C.(2007).Public-private partnerships: An international performance review.Public Administration Review,67(3),545-558.
23. Jin, X. H.,Doloi, H.(2008).Interpreting risk allocation mechanism in public-private partnership projects: An empirical study in a transaction cost economics perspective.Construction Management and Economics,26(7),707-721.
24. Ke, Y.,Wang, S. Q.,Chan, A. P. C.,Lam, P. T. I.(2010).Preferred risk allocation in China's public-private partnership (PPP) projects.International Journal of Project Management,28(5),482-492.
25. Kettl, D. F.(1993).Sharing power: Public governance and private markets.Washington, D. C.:The Brookings Institution.
26. Kumaraswamy, M. M.,Zhang, X. Q.(2001).Governmental role in BOT-led infrastructure development.International Journal of Project Management,19(4),195-205.
27. Lee, J. N.,Kim, Y. G.(2005).Understanding outsourcing partnership: A comparison of three theoretical perspectives.IEEE Transactions on Engineering Management,52(1),43-58.
28. Matsukawa, J.,Habeck, O.(2007).,未出版
29. Medda, F.(2007).A game theory approach for the allocation of risks in transport public private partnerships.International Journal of Project Management,25,213-218.
30. Miller, G.(2000).Above politics: Credible commitment and efficiency in the design of public agencies.Journal of Public Administration Research and Theory,10(2),289-327.
31. Moulton, S.,Wise, C.(2010).Shifting boundaries between the public and private sectors: Implications from the economic crisis.Public Administration Review,70(3),349-360.
32. Murphy, T. J.(2008).The case for public-private partnerships in infrastructure.Canadian Public Administration,51(1),99-126.
33. Ng, A.,Loosemore, M.(2007).Risk allocation in the private provision of public infrastructure.International Journal of Project Management,25,66-76.
34. Nisar, T. M.(2007).Risk management in public-private partnership contracts.Public Organization Review,7,1-19.
35. OECD=The Organisation for Economic Co-operation and Development(2010).,未出版
36. Parker, D.,Hartley, K.(2003).Transaction costs, relational contracting and public private partnerships: A case study of UK defence.Journal of Purchasing & Supply Management,9,97-108.
37. Peters, B. G.(1998).Managing horizontal government: The politics of co-ordination.Public Administration,76,295-311.
38. Powell, W. W.(Ed.),DiMaggio, P. J.(Ed.)(1991).The new institutionalism in organizational analysis.Chicago:The University of Chicago Press.
39. Rogers, E. M.(1995).Diffusion of innovations.New York:Free Press.
40. Rune, T.(2005).Organisational change management: A critical review.Journal of Change Management,5(4),369-380.
41. Steelman, T. A.(2010).Implementing innovation: Fostering enduring change in environmental and natural resource governance.Washington, DC:Georgetown University Press.
42. Teisman, G. R.,Klijn, E. H.(2002).Partnerships arrangement: Governmental rhetoric or government scheme.Public Administration Review,62(2),197-205.
43. Ting, M. T.(2002).A theory of jurisdictional assignments in bureaucracies.American Journal of Political Science,46(2),364-378.
44. Tiong, L. K.,Alum, J.(1997).Final negotiation in competitive BOT tender.Journal of Construction Engineering and Management,123(1),6-10.
45. United Nations(2008).Guidebook on promoting governance in public-private partnerships.United Nations.
46. Vining, A. R.,Boardman, A. E.(2008).Public-private partnerships in Canada: Theory and evidence.Canadian Public Administration,51(1),9-44.
47. 王寶玲(2005)。促參公共建設案件剖析。營建知訊，271，65-68。
48. 朱鎮明、曾冠球(2010)。行政院各部會綜合規劃司處職能與運作之研究。台灣公共治理研究中心年度研討會，台北:
49. 吳福祥(2007)。公共工程民間參與投資興建營運（BOT）案之執行檢討。技師月刊，45，73-80。
50. 宋明哲(2001)。現代風險管理。台北:五南圖書。
51. 林淑馨(2010)。日本型公私協力：理論與實務。台北:巨流。
52. 張學聖、黃惠愉(2005)。都市更新公私合夥開發模式與參與認知特性之研究。立德學報，2(2)，51-68。
53. 陳恆鈞(2009)。參與治理是趨勢？或是迷思？。文官制度季刊，特刊，113-144。
54. 陳敦源、張世杰(2010)。公私協力夥伴關係的弔詭。文官制度季刊，2(3)，17-71。

1. 陳志豪,邢志航(2019)。運用平衡計分卡建構評估公共建設公私協力（PPP）專案績效認知關鍵因素之研究。物業管理學報，10(1)，24-37。
2. 許志榮(2023)。地方政府委託私人辦理實驗教育之研究：以宜蘭人文中小學解約為例。學校行政，147，174-206。
3. 黃浩瑋、吳宗憲(2014)。促參承辦人工作動機和團隊關係對其工作態度的影響研究。行政暨政策學報，58，87-120。
4. 喬憲新、林煥笙(2015)。地方政府跨部門協力網絡的運作分析—以臺北市與新北市雙城共飲翡翠水為例。文官制度季刊，7(4)，73-119。