社會網絡分析在公共政策權力途徑上應用之初探：以全民健保的重要政策事件為例

The Application of Social Network Analysis on Power Pathway Measurement in Public Policy: The Case Study of National Health Insurance's Crucial Policy Events

10.29865/PAP.201312_(57).0002

王光旭(Guang-Xu Wang)

社會網絡分析 ； 權力途徑 ； 中心性 ； 全民健保 ； 公共政策 ； social network analysis ； power approach ； centrality index ； National Health Insurance (NHI) ； public policy

行政暨政策學報

57期（2013 / 12 / 01）

37 - 90

繁體中文

在多數政治環境中，決策是集體行動的結果，也是政策產出最重要的影響因素之一，探究誰統治（who governs）？誰掌控政策產出？或是決策過程中的權力分佈（power distribution）如何系統化的測量與圖像化（visualisation）？影響權力分佈的因素為何？一直是古老、核心且無可避免的研究議題，對上述研究問題的重視也導致學術界與實務界對於測量權力路徑的需求。但過去對於集體決策的研究，都難以清楚從質、量化的方法，掌握決策權力運作的機制與特質。本論文以理論發展為始，並以1998年到2012年間四個重要的健保財務改革政策為討論個案，透過文獻資料，深度訪談蒐集相關研究資料，企圖從結構分析（structure analysis）的角度，以社會網絡分析法（social network analysis）為分析工具，並運用程度中心性指數（degree centrality index）及圖像化的方式，對健保政策近十年來的改革進行影響力機制的分析，並探討權力分佈是鑲嵌政策參與者何種互動結構之中，以及是否對政策產出的結果造成影響。在理論的企圖上，本文展示了社會網絡分析法作為一親近現實決策權力分佈分析工具的可能性；在實務的企圖上，本文也透過社會網絡分析法，對健保政策複雜的治理機制進行一系統化的分析，並提出相關的政策建議。

Policy-making process, without any doubt, can be always translated into a language of power. In order to explore how policy is made, numerous scholars in Politics. Public Administration, and Policy Science have attempted to find the best approach to measure power distribution and its impact factors in policy-making processes. However, none of these approaches can help us to grasp the constant changes of ”power map” systematically. In Sociology, or more specifically, Political Sociology, the development of social network analysis technique seems to shed the light to supplement the gap. Based on social network analysis, power distribution can be understood by the perspectives of not only relation between actors but also position in a bounded network structure. This study attempts to follow this idea to study the power distribution and its impact factors of Taiwan's National Health Insurance (NHI) sustainability between 1998 and 2012. In regard to research methods, in-depth interviews have been used to collect data. In conclusion, first, for those who are searching for ”localised power map” to analyse policy processes in Taiwan, this study is a primary but useful beginning for applying social network analysis. Second, with regard to the most powerful actors of Taiwan's NHI domain, there is no doubt that the alliance between the public sectors and the providers show critical influence in the policy making process.

1. 王光旭(2008)。政策網絡的行動體系分析：以台中工業區聯外道路案為例。政治科學論叢，37，151-210。
   連結：
2. 王光旭(2005)。政策網絡研究在公共行政領域中的核心地位與方法錯位。政策研究學報，5，61-102。
   連結：
3. 王光旭(2011)。社會網絡影響公私協力運作成效之研究：以台灣中醫與牙醫健康保險總額支付委員會為例。行政暨政策學報，53，65-114。
   連結：
4. 王光旭、陳敦源(2010)。政務領導、國會監督與官僚自主：台灣全民健保政策「否決者」之研究，1986-2004。行政暨政策學報，50，107-157。
   連結：
5. 史美強、王光旭(2008)。台灣府際財政治理的競合關係：一個網絡分析的實證研究。公共行政學報，28，54-73。
   連結：
6. 陳世榮(2007)。探究環境治理中的知識溝通：台灣氣候變遷研究的網絡分析。公共行政學報，25，1-30。
   連結：
7. 陳敦源、劉宜君、蕭乃沂、林昭吟(2011)。政策利害關係人指認的理論與實務：以全民健保改革為例。國家與社會學報，10，1-65。
   連結：
8. Weber, Max. 1947. The Theory of Social and Economic Organization. New York: Free Press
9. Bachrach, Peter,Baratz, Morton S.(1962).Two Faces of Power.The American Political Science Review,56,947-952.
10. Baldwin, Timothy T.,Bedell, Michael D.,Johnson, Jonathan L.(1997).The Social Fabric of a Team-based MBA Program: Network Effects on Students Satisfaction and Performance.Academy of Management Journal,40(6),1369-1397.
11. Bonacich, Phillip(1987).Power and Centrality: A Family of Measures.American Journal of Sociology,92,1170-1182.
12. Burris, Val(2005).Interlocking Directorates and Political Cohesion among Corporate Elites.American Journal of Sociology,111,249-283.
13. Carlsson, Lars(2000).Policy Networks as Collective Action.Policy Studies Journal,28(3),502-521.
14. Compston, Hugh(2009).Policy Networks and Policy Change: Putting Policy Network Theory 10 the Test.New York:Palgrave Macmillan.
15. Dahl, Robert Alan(1961).Who Governs?.New Heaven:Yale University Press.
16. Dowding, Keith(2001).There Must Be End to Confusion: Policy Networks, Intellectual Fatigue, and the Need for Political Science Methods Courses in British Universities.Political Studies,49,89-105.
17. Dowding, Keith(1995).Model or Metaphor? A Critical Review of the Policy Network Approach.Political Studies,XLIII,136-158.
18. Dunleavy, Patrick,O''Leary, Brendan(1987).Theories of the State: The Politics of Liberal Democracy.London:MacMillan Education.
19. Dye, Thomas R.(2002).Understanding Public Policy.N.J.:Prentice Hall.
20. Easton, David(1985).Political Science in the United State: Past and Present.International Political Science Review,6(1),133-152.
21. Ferlie, Ewan(ed.),Lynn, Laurence E.(ed.),Pollitt, Christopher(ed.)(2007).The Oxford Handbook of Public Management.Oxford:Oxford University Press.
22. Forester, John(1989).Planning in the Face of Power.Berkeley:University of California Press.
23. Freeman, Linton C.(1979).Centrality in Social Networks: I Conceptual Clarification.Social Networks,1,215-239.
24. Galaskiewicz, Joseph(1979).Exchange Network and Community Politics.New York:Academic Press.
25. Granovetter, Mark(1985).Economic Action and Social Structure: the Problem of Embeddedness.American Journal of Sociology,91(3),481-510.
26. Hajer, Maarten A.,Wagenaar, Hendrik(2003).Deliberative Policy Analysis: Understanding Governance in A Network Society.New York:Cambridge University Press.
27. Ham, Christopher,Hill, Michael James(1984).The Policy Process in the Modern Capitalist Society.Sussex:Harcester Press.
28. Hanneman, Robert A.,Riddle, Mark(2005).Introduction to Social Network Methods.Riverside, CA:University of California, Riverside.
29. Healey, Patsy(2007).Urban Complexity and Spatial Strategies : towards a Relational Planning for our Times.London:Routledge.
30. Hudson, John,Lowe, Stuart(2006).Understanding the Policy Process: Analysing Welfare Policy and Practice.Bristol:The Policy Press.
31. Hunter, Floyd(1953).Community Power Structure: A Study of Decision Makers.Chapel Hill:University of North Carolina Press.
32. John, Peter(2011).Making Policy Work.New York:Routedge.
33. Kadushin, Charles(1995).Friendship among the French Financial Elite.American Sociological Review,60,202-221.
34. Ketti, Donald F.(1999).The Future of Public Administration.Journal of Public Affairs Education,54,127-133.
35. Knoke, David(1994).Political Network: the Structural Perspective.New York:Cambridge University Press.
36. Knoke, David,Pappi, Franz Urban,Broadbent, Jeffrey,Tsujinaka, Yutaka(1996).Comparing Policy Networks: Labor Politics in the U.S., Germany. and Japan.New York:Cambridge University Press.
37. Knoke, David,Yang, Song(2008).Social Network Analysis.London:SAGE.
38. Krackhardt, David(1988).Predicting with Networks: Nonparametric Multiple Regression Analysis of Dyadic Data.Social Networks,10,359-381.
39. Kraekhardt, David(1987).QAP Partialling as a Test of Spuriousness.Social Networks,9,171-186.
40. Lasswell, Harold D.(1990).Politics: Who Gets What, When and How?.New York:Peter Smith Publisher.
41. Laumann, Edward O.,Knoke, David(1987).Organizational State: Social Choice in National Policy Domains.Madison, Wis.:University of Wisconsin Press.
42. Laumann, Edward O.,Marsden, Peter V.,Galaskiewicz, Joseph(1977).Community-elite Influence Structures: Extension of a Network Approach.American Journal Sociology,83,594-631.
43. Laumann, Edward O.,Pappi, Franz Urban(1976).Networks of Collective Action: A Perspective on Community Influence Systems.New York:Academic Press.
44. Lerner, Daniel(ed.),Lasswell, Harold D.(ed.)(1951).Policy Science.Stanford, Calif.:Stanford University Press.
45. Lindblom, Charles Edward(1980).The Policy Making Process.Englewood, Cliffs., N. J.:Prentice-Hall, Inc..
46. Lukes, Steven(1974).Power: A Radical View.London:MacMillan Press.
47. Marsh, David(ed.)(1998).Comparing Policy Networks.Buckingham:Open University Press.
48. Marsh, David(ed.),Rhodes, R. A. W.(ed.)(1992).Policy Network in British Government.Oxford:Clarendon Press.
49. Mills, C. Wright(1956).The Power Elite.New York:Oxford University Press.
50. Moran, Michael John(ed.),Rein, Martin(ed.),Goodin, Robert Edward(ed.)(2006).The Oxford Handbook of Public Policy.Oxford:Oxford University Press.
51. Munger, Michael C.(2000).Analysing Policy: Choices, Conflicts, and Practices.New York:W. W. Norton.
52. Nash, Kate(ed.),Scott, Alan(ed.)(2001).The Blackwell Companion to Political Sociology.Oxford:Blackwell Publishing.
53. Nohria, Nitin(ed.),Eccles, Robert G.(ed.)(1992).Networks and Organizations.Boston:Harvard Business School Press.
54. Nohria, Nitin(ed.),Eccles, Robert G.(ed.)(1992).Networks and Organizations: Structure, From, and Action.Boston, MA:Harvard Business School Press.
55. Nystrom, Paul C.(ed.),Starbuck, William Haynes(ed.)(1981).Handbook of Organizational Design.London:Oxford University Press.
56. Pareto, Vilfredo(1991).The Rise and Fall of Elites: An Application of Theoretical Sociology.New Brunswick, N.J.:Transaction Publication.
57. Peters, B. Guy(ed.),Pierre, Jon(ed.)(2006).Handbook of Public Policy.London:Sage.
58. Rhodes, R. A. W.(1997).Understanding Governance: Policy Networks, Governance, Reflexivity and Accountability.Buckingham:Open University Press.
59. Rhodes, R. A. W.(ed.)(2011).Public Administration 25 Years of Analysis and Debate.Oxford:Blackwell Publishing Ltd.
60. Sandström, Anniea(2008).Dept. of Business Administration and Management, Lulea University of Technology.
61. Scott, John G.(2005).Social Network Analysis.London:SAGE.
62. Scott, John(ed.),Carrington, Peter J.(ed.)(2011).The SAGE Handbook of Social Network Analysis.London:SAGE.
63. Scott, Robert A.,Shore, Arnold R.(1979).Why Sociology Does Not Apply: A Study of the Use of Sociology in Public Policy.New York:Elsevier.
64. Simon, Herbert A.(1997).Administrative Behaviour.New York:Macmillan.
65. Sparrowe, Raymond T.,Linden, Robert C.,Kraimer, Maria(2001).Social Networks and the Performance of Individuals and Groups.Academy of Management Journal,44(2),316-325.
66. Wasserman, Stanley(ed.),Galaskiewicz, Joseph(ed.)(1994).Advances in Social Network Analysis: Research in the Social and Behavioral Sciences.London:SAGE.
67. Wasserman, Stanley,Faust, Katherine(1994).Social Network Analysis.New York:Cambridge University Press.
68. Wildavsky, Aaron(1979).Speaking Truth to Power: The Art and Craft of Policy Analysis.Boston:Little, Brown and Company.
69. 王光旭(2009)。博士論文(博士論文)。國立政治大學公共行政學系。
70. 丘昌泰(2010)。公共政策基礎篇。台北:巨流。
71. 馬財專(2007)。網絡分析在政策領域的分析脈絡。政治科學論叢，33，1-42。
72. 陳敦源(2006)。全民健康保險監理委員會委託研究計畫全民健康保險監理委員會委託研究計畫,全民健康保險監理委員會。
73. 熊瑞梅(1995)。國科會專題研究計畫國科會專題研究計畫,國科會。
74. 劉宜君、陳敦源、蕭乃沂、林昭吟(2006)。網絡分析在利害關係人概念之應用：以我國全民健保政策改革為例。台灣社會福利學刊，4(1)，95-130。
75. 羅家德(2005)。社會網絡分析講義。北京:社會科學文獻出版社。

1. 簡子文,張浩也,孫同文,林晏生(2023)。地方議會分配政治網絡分析：以南投縣第 17 與 18 屆議員提案為例。文官制度季刊，15(2)，121-157。
2. 劉宜君,葉謹寧,陳敦源,林昭吟,王光旭(2021)。全民健康保險委員會決策參與影響因素之探析：社會網絡分析的觀點。行政暨政策學報，72，67-114。
3. 劉照金,陳萬光,張俊一(2019)。羽球休閒運動社團互動型態之社會網絡分析。體育學報，52(4)，485-501。
4. 馬嘉應,吳素雲(2022)。運用社會網絡分析解釋員工離職傾向之研究。輔仁管理評論，29(3)，63-81。
5. 王光旭(2015)。社會網絡分析在公共行政領域研究的應用。調查研究：方法與應用，34，67-134。
6. 謝儲鍵(2019)。氣候變遷下的網絡觀點：探索環境政治協商的複雜性。公共行政學報，56，171-187。
7. 顏良恭,謝儲鍵(2020)。中國大陸森林認證政策轉變之分析：協力網絡觀點。中國大陸研究，63(1)，41-81。
8. 葉如萍,陳聖夫(2021)。海洋空間規劃強調之權益關係人參與：東西吉廊道禁漁協作會議之社會網絡分析。規劃學報，39(1)，1-31。