民間參與公共建設案營運績效評估之研究-以臺北車站特定專用區交九用地開發案為例

Abstract

近年來政府為了解決財政預算不足的問題，在政府頒布「促進民間參與公共建設法」後，藉由引進民間資金投資興建公共建設，以及透過企業經營理念來增進公共服務品質，已成為目前的趨勢。但是這些促參案件的特許期短則數年、長達數十年，對於政府財政、整體社會與經濟層面的影響既深且久，而目前促參政策的推動是否有達到預定目標，有待於系統地追蹤及深入探討。 本研究回顧相關文獻及實際案例探討後發現，這些政府推動的促參建設會實際影響到民眾的生活環境，然而在促參法及各促參案件的營運績效評估辦法中，營運績效評估項目只依據法條所訂定，卻無法全然去評估到促參案件在社會面與環境面的影響。 Figge et.al在2002年提出「永續平衡計分卡」(Sustainability Balanced Scorecard, SBSC)概念，認為要管理企業策略的執行績效應包含永續性的社會面與環境面，來補足原有管理策略的不足。本研究認為促參案件在營運績效評估上，透過永續平衡計分卡架構來制定營運績效評估指標，不僅顧及政府、民間機構與民眾三方利益外，更可評估整體案件在營運階段時對於社會面及環境面的影響。 本研究以臺北車站特定專用區交九用地開發案為例，沿用第一年度的營運績效評估報告，以永續平衡計分卡架構與相關文獻研擬不足的指標項目，再應用層級程序分析法計算各構面指標權重，並後續評鑑各指標分數，其結果可望協助政府在監督管理促參案件營運績效之改善與後續決策。 根據研究結果，在增加社會構面與環境構面後的權重分析下，社會與環境構面權重合計達31.5%，若再以本研究設計的「員工滿意度」、「社區關係」、「空氣品質檢測」、「噪音檢測」四項指標權重總計也達28.49%，顯示確實各專家委員對於這些評估項目相當重視，且評鑑分數也從原本的80.1分變成75.80分，在往後的營運績效評估確實是需要列入評估的。由於研究時間限制與評鑑調查的複雜性，未來在指標項目的擬定與相關影響，以及評鑑的完整性，後續可以進一步研究。

In recent years, the Government in order to solve the problem of insufficient budget , after the government promulgated the "Promotion of Private Participation in Infrastructure Projects", it has become a trend that the construction of public facilities by the introduction of private capital investment, and improve the quality of public services through the business philosophy. However, the concession period of these cases is form several years to decades, and the impact is overall deep and long in the fiscal, social and economic aspects. Now, it has to be systematic tracking and review these policies whether it achieve the desired goals or not. This study found that these constructions of Public Private Partnership will have practical impact to people’s community and environment after reviewed the literature and actual case study. But in the law of the Public Private Partnership and other case of performance evaluation methods, the Indicators of operational performance assessment only refer to the law. Therefore, it couldn’t completely to assess the effects of the social and environmental aspects in these cases. Figge et.al provide the concept of the "Sustainability Balanced Scorecard" in 2002, and it notion that the implementation of strategies to manage corporate performance should include the sustainability of social side and environmental side, in order to complement the existing management lack of strategy. This study suggests that performance evaluation of cases of Public Private Partnership should set the the indicators of operational performance evaluation through the framework of Sustainability Balanced Scorecard. It takes into account not only the benefits of three parties, including government, private institutions and the people , but also the evaluation of the overall performance in social and environmental side effects. This research take Taipei Main Station as an example, following the operating performance assessment in the first year, Develop the indicators by the framework of Sustainability Balanced Scorecard and related literature ,and then use the method of Analytic Hierarchy Process to calculate the weight of each dimensions and the indicators, and the next step is the evaluation of each indicators. In order to assist the Government in the supervision and management of the cases of Public Private Partnership and improvement of operational performance and decision-making in the future. According to the results of study, the weight analysis after addition of the dimension of social aspects and environmental aspects , the sum of weight in the social and environmental aspects is 31.5%, and the sum of weight of employee satisfaction, community relationship, detection of air quality and noise which these indicators set by this study is also up to 28.49%, shows indeed importance from the experts of Assessment Committee. the evaluation score of 80.1 points in the original assessment decline to 75.80 points in the subsequent operating performance assessment .It also shows that these item s have to take into account .Because of time constraints and the complexity of the evaluation survey,the development of indicators and research for related effects , and evaluation of the integrity of the follow-up survey ,will further discuss in the future.