國家太空中心改制行政法人之研究—多元流理論的觀點;A Study on the Transformation of the Taiwan Space Agency into a Non-Departmental Public Body: A Multiple Streams Framework Perspective.

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题名:	國家太空中心改制行政法人之研究—多元流理論的觀點;A Study on the Transformation of the Taiwan Space Agency into a Non-Departmental Public Body: A Multiple Streams Framework Perspective.
作者:	李柏樵;Li, Po-Chiao
贡献者:	法律與政府研究所
关键词:	國家太空中心;政府捐助之財團法人;行政法人化;多元流程;Taiwan Space Agency(TASA);Government-funded Non-Profit Organization;Non-Departmental Public Bodies(NDPB);Multiple Streams Framework(MSF)
日期:	2025-04-14
上传时间:	2025-10-17 11:50:04 (UTC+8)
出版者:	國立中央大學
摘要:	我國截至2024年底，行政院成功推動設立行政法人個案僅有11個，而研議後未推動成功案例不在少數，顯見《行政法人法》雖已施行多年，但推動組織改制、新設的作業實屬不易。其中本研究個案《國家太空中心設置條例草案》於2021年送立法院審議後，罕見地在5個月內即完成立法程序，創下行政法人組織法最快審議完成的紀錄。因此，本研究聚焦於國家太空中心改制的立法過程，透過個案研究，拆解其能快速完成審議的關鍵，除藉此分析政府捐助之財團法人(包含其所屬單位)在行政法人化所必要的成本與代價，也期待釐清促成改制的要件。本研究參考美國學者John Wells Kingdon於1984年所提出的多元流程框架，嘗試透過問題流程、政策流程、政治流程等三項流程，檢視立法過程中所影響議案的事件。並依據相關學術文獻以及國內外次級資料，彙整本研究個案的組織歷史、推動改制原因及時空背景等，再加以與主管機關(國科會、國研院)、太空中心、立法院等第一線推動改制者深度訪談，蒐集受訪者實務運作觀察，進一步瞭解其中未曾落於書面紀錄的立法轉折。而經本研究發現，若以多元流程框架為理論基礎，在相對應階段有合適的政策企業家推波助瀾下，可以說太空中心行政法人化的立法過程，確實達成了問題、政策、政治流程要件，因此奠定其在我國行政法人化案例中「最速組改」的里程碑。最後，本研究建議未來財團法人研議行政法人化以前，除了應先評估組織發展方向，也需考慮完成上位母法授權組織設置，並在立法審議過程中廣納各界建議，創造不同意見的合作可能，以加速組織改制推動。;As of the end of 2024, the Executive Yuan of Taiwan has successfully established only 11 Non-Departmental Public Bodies (NDPBs), while there have been numerous cases where proposed initiatives were ultimately not implemented. This demonstrates that despite the Non-Departmental Public Bodies Act having been in effect for years, restructuring or establishing new organizations remains a challenging task. Among these cases, the draft bill for the establishment of the Taiwan Space Agency(TASA) was submitted to Congress for review in 2021 and, remarkably, completed the legislative process within just five months. This set a record for the fastest review of an NDPB organization law. Therefore, this study focuses on the legislative process of the TASA’s restructuring, analyzing the key factors that enabled its swift approval. Through this case study, we aim not only to examine the costs and trade-offs associated with transitioning a Government-funded Non-Profit Organization(including its affiliated units) into an NDPB but also to clarify the essential conditions that facilitated this restructuring. This study references the Multiple streams framework(MSF) proposed by American scholar John Wells Kingdon in 1984. By analyzing the legislative process through the three streams—problem, policy, and political—we assess the events that influenced the passage of the bill. Drawing from academic literature and secondary sources both domestically and internationally, we compile the historical background of the organization, the reasons for its restructuring, and the broader contextual factors at play. Furthermore, through in-depth interviews with key stakeholders—including the National Science and Technology Council, the National Applied Research Laboratories, the TASA, and legislators involved in the process—we gather firsthand insights into the legislative dynamics that may not have been recorded in official documents. Based on the findings of this study, using the MSF as the theoretical foundation, the legislative process for transforming the TASA into a NDPB successfully aligned the problem, policy, and political streams—with the support of effective policy entrepreneurs at each corresponding stage. As a result, this case has become a milestone, representing the fastest organizational restructuring among similar transformations in Taiwan. Finally, this study recommends that, before considering the transformation of a Government-funded Non-Profit Organization into an NDPB, it is essential to first assess the organization’s developmental direction. Furthermore, it is crucial to ensure that the establishment of such an organization is authorized by the overarching legal framework. During the legislative process, gathering input from diverse stakeholders and fostering collaboration among differing viewpoints can help accelerate the transformation process.
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