政治民主化與社會政策：探索政治制度對台灣年金制度建構的影響

Political Democratization and Social Policy: Exploring the Impact of Political Institutions on the Pension Scheme-Building in Taiwan

10.6171/ntuswr2011.23.02

施世駿(Shih-Jiunn Shi)；葉羽曼(Yu-Man Yeh)

社會政策 ； 國民年金 ； 政治制度論 ； 否決點 ； 台灣 ； social policy ； national pension insurance ； political institutionalism ； veto point ； Taiwan

臺大社會工作學刊

23期（2011 / 06 / 01）

47 - 91

繁體中文

台灣自1990年代初開始國民年金的規劃與研議，期間歷經行政、立法部門、專家學者與社會團體的參與討論，最後在2007年通過法案。本文試圖從政治制度論的觀點，透視台灣民主化過程中年金政策決議過程的制度「否決點」形態，並且佐以文獻研究、次級資料分析、專家訪談等方式做為經驗資料的基礎，分析國民年金保險制度建立過程中，政治制度形態以及制度否決點的變化，如何影響國民年金政策的理念、利益與制度樣貌。我們發現在民主深化後的少數政府制度制約與朝野緊張的政治競爭下，國民年金的政策研擬深受多元化的政治與社會力量影響，導致政策不連續，甚至形成政治空轉的民主困境。從民主突破到民主深化的過程中，國民年金體現台灣政治制度的權力責任分散化，以及社會團體參與多元化的特性，雖然有助於不同理念的彼此爭辯，藉此凝聚較強的政策共識，但是卻也較易造成政策決議過程的擺盪。從民主轉型的政治制度與否決點面向分析出發，本文企圖提供日後研究台灣社會政策過程中的不同思考取徑，以及相關制度理論觀點對未來分析台灣社會福利政策的意涵。

Since 1990s, Taiwan has put National Pension Insurance scheme on the political agenda, and finalized the version in 2008 after decade-long discussions by various government mechanisms and many interest groups in Taiwan's civil society. This article seeks to employ the perspective of political institutionalism in order to identify the form of 'veto points' in the pension policymaking against the background of democratization. Based on the literature review, secondary data analysis, and expert interviews, we explore the impact of changing political institutions and institutional veto points on policy ideas, interests and institutional frameworks of the National Pension Insurance. The main finding is that, under the constraints of the minority government and political tensions between ruling and opposition parties during the democratic deepening phase (i.e. after year 2000), the policymaking process of the National Pension Insurance scheme has been bogged down by the interplay of pluralized, if not contradictory, political and social interests, leading to political impasse and policy fluctuations. In National Pension policy domain, we have witnessed fragmentary power relations in political institutions as well as pluralization of social interest intermediation. Although these changing contexts have indeed facilitated the contestation of different ideas conducive to the convergence of policy consensus, the result is that these contexts inevitably tended to precipitate inconsistent policy developments. The present study should demonstrate the explanatory power of political institutionalism and veto points in accounting for pension policy evolution within the context of democratic transformation, and offer rationales for the application of these theoretical viewpoints in the future research of social policy in Taiwan.

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