從基層官僚的觀點探討參與式預算的政策執行—以臺北市區公所為例

參與式預算的發展在全球許多大城市都是民主政治參與的策略之一，近年來在臺灣各地方政府間更是如火如荼地推動，其中臺北市政府的推動模式是以行政機關為推動主體，12個區公所為主要執行單位。因此，各區公所的基層公務人員便成為政策運作的執行核心與溝通橋樑，對於政策執行力的成效也有相當程度的影響。本研究從執行人員的角度，針對執行力模式提供實務經驗的補充，給予更細緻化的探討，並且藉由執行人員意向與因應策略的探討，作為實務上補強政策規劃與設計，並提升政策執行力之參考。為了深度探究執行人員在政策過程中的影響情形，研究者以陪伴學校成員的身份實際參與參與式預算的執行，並且透過深度訪談以獲取基層執行人員在執行過程的意向、所遭遇的困境、問題發生的原因以及解決問題的因應策略，同時輔以參與觀察與次級資料分析法，建構出基層人員在參與式預算政策執行中所扮演的角色與互動情形，以及該政策在Edward III政策執行力模式下的適用。研究發現，基層人員的執行意向並不會直接影響因應策略的選擇，反而受限於環境、資源等因素而無法充分發揮。執行意向也受到其他因素不同程度的影響，間接形成因應策略。而組織結構以及外在環境的公民素養、上級規劃者意向以及與各相關單位的溝通暢通度也是影響因應策略選擇的重要因素。在實務上的建議，未來執行重點應放在促進民眾主動參與的熱忱，手段上則應提升宣傳有效性，並且以公民教育為首要任務。為了提升執行績效，可透過參與式預算的手段來激勵基層人員的工作動機。長遠來看，則應訂定各區因地制宜的階段性目標，以逐步實現參與式預算的政策願景。

關鍵字

參與式預算；執行力模式；基層官僚；執行者意向

並列摘要

The development of participatory budgeting is one of the strategies for participatory democracy used in many major cities around the world. In recent years, it has been increasingly promoted among local governments in Taiwan. The promotion model of the Taipei City Government is based on 12 district offices. Thus, street-level bureaucrats have become central to the implementation and communication of policy operations. This study supplements the existing implementation model, through an in-depth discussion, from the perspectives of street-level bureaucrats, on disposition and response strategies, with an aim to reinforce the planning and design process of government policies. In order to identify the influence of the implementers on the policy process, the researcher participated in participatory budgeting as a member of the participatory implementation partner university. The researcher also obtained the dispositions, dilemmas, cause of problem, and response strategies of street-level bureaucrats through in-depth interviews. Observation and secondary data analysis methods were also employed to reconstruct the role and interaction of street-level bureaucrats within the process of participatory budgeting. Finally, the applicability of participatory budgeting in Edward III’s Public Policy Implementation Model is explored. Results revealed that the implementation disposition of street-level bureaucrats does not directly affect the choice of response strategies. However, strategies are limited by factors such as environment and resources. It is also affected by other factors to varying degrees, with these indirectly forming the response strategy. The study also found that organizational structure, civic literacy, supervisor intentions, and inter-department communications are all important factors affecting the choice of response strategies. In practice, future participatory budgeting implementation efforts should focus on increasing the active involvement of the citizenry. Means of achieving higher involvement should be to effectively increase awareness on and increase civic education for participatory budgeting. To elevate execution efforts, street-level implementers can also be motivated through participatory budgeting methods. In the long run, a multi-phased goal, tailored to local conditions to gradually realize the policy vision of participatory budgeting, should be set.