本文旨在檢驗非國家行為者如何形塑規範性的國際關係。多數研究者對於傳統議題例如人權、環保與女權的跨國倡議網絡頗多著墨，但較少有系統的研究反貪腐議題。在國際政治經濟學領域，國際透明組織(TransparencyInternational, TI)是其中一個具代表性的非政府組織。該組織透過建構跨國倡議網路、建立與世界銀行的公私夥伴關係，以及強化與國際主要商業評等公
司的合作等三途徑， 將各國政府的貪腐情況量化做成貪腐印象指數（Corruption Perceptions Index, CPI），進而推廣成為全球最權威的政府治理能力參考指標。既有文獻Wang, H., & Rosenau, J., N. (2001)認為國際透明組織之策略為羞辱型之可責性政治 (accountability politics) ，這種論述似有修正必要。傳統議題之跨國倡議網絡固然運用可責性政治，針對主權國家侵害人權進行批判。反貪運動則採取迥然不同之策略，精確的策略論述應該是人氣政治(popularity politics)，促使主權國家反貪倡廉以吸引外資。近年來CPI 被選列為全球三大信用評等機構的各國主權評等考量因素。其影響層面深及各國吸引外資的能力。換言之，從無形的思想、價值、與期望著手，國際透明組織在過去十年間，不僅僅是大大的提升了反貪腐訴求的國際能見度，更進一步以規範的制定者與領導者自居，引領全球商業界建立共同的行為規範。本文認為國際透明組織的國際影響力在於其獨特(一)角色定位、(二)成員專業說服力、以及(三)跨層次合作包括非政組織(NGOs)、主權國家以及國際政府間組織(IGO)的策略。反貪腐獨特的困難之處在於沒有直接而明顯的被害人，不容易引起媒體的注意，也因此很難排入決策者的優先議程。但是全球治理的浪潮中，人民普遍接受反貪腐為普世價值，而各國政府礙於反貪腐訴求有其象徵性的意義也直接牽動了執政的合法性而不得不接受。從規範的建構與散佈而言，國際透明組織改變了國際體系成員的觀念與行為準則。

This paper examines how non-state actors shape normative international
relations. While many researchers have studied traditional agendas, such as human rights, environment, and women’s rights in the context of transnational advocacy network (TAN), little attention has been paid to global anti-corruption.Transparency International (TI) is an pioneer non-governmental organization,which constructs an unique advocacy network, builds private-public partnerships,and strengthens cooperation with major credit rating agencies. TI’s corruption perceptions index (CPI) has become the most authoritarian benchmark to measure governance capabilities of sovereign states.A literature written by H. Wang & J. N. Rosenau in 2001 concludes thatTI’s strategy is the shaming-based accountability politics. Their discourse, however,does not match the fact. This paper presents a criticism of Wang & Rosenau’s paper by arguing for popularity politics, which encourages sovereign states to
strengthen their anti-corruption policy for the sake of attracting foreign direct investment. In recent years, CPI has been included in the criteria of evaluating sovereign credit ratings by three major international credit rating agencies. The ratings have direct impact on FDI. In other words, TI’s endeavors not only elevate its international
publicity but also shape new norms in international business transactions.This paper finds that TI projects its influence on role play, professional persuasion, and cross-dimension cooperation between NGOs, sovereign states,and IGOs. Anti-corruption is a difficulty task for no direct victims to attract media attention, which is a useful prerequisite to jump into decision-maker’s agenda. In the wake of globalization, people tend to embrace anti-corruption as a universal
value. Governments become reluctant followers of this belief in order to maintain its legitimacy. In terms of constructing and disseminating norms, TI has successfully shaping many participants’ identity and code of conduct in global society.