治理與公民參與－淡水河流域治理之Q方法論分析

Governance and Citizen Participation: A Q Methodology Study on the Governance of Tamsui River Basin

方凱弘(Kai-Hung Fang) ； 陳宏興(Hung-Hsing Chen)

《臺灣民主季刊》 11卷1期 (2014/03) Pp. 41-101

摘要

我國自從解嚴開啟了民主化的浪潮，在短短的20年間，政治上先後歷經國會全面改選、總統直選與政黨輪替等巨變，使得原本以國民黨為中心的威權黨國體制瓦解，也造成政府對於公民社會的控制弱化。幾乎同一時期，在公共行政的研究領域中，「治理」的概念也逐漸盛行，主張國家機關不應該再是主導公共服務提供的最主要行為者，然而，當越來越多的公民社會行為者參與治理過程的同時，是否也意味著治理的模式，也將從傳統的國家機關中心轉變為公民社會中心？在治理的邏輯下，Pierre與Peters（2005）根據國家機關在現代治理過程中所扮演的角色，將治理的模式分為國家主義模式、自由民主模式、國家中心模式、荷蘭治理學派模式與無政府治理模式等五種模式，而這五種模式事實上也分別代表了五種不同國家機關與公民社會間的關係。我國政府在這兩股力量的驅使下，國家機關與公民社會間的關係也勢必調整。在我國的政策系絡中，環境治理為民眾最關心的政策領域之一，也因此本文選擇淡水河流域治理的經驗為個案，透過Q方法論進行研究，希望了解此一政策領域之利害關係人，對於淡水河治理過程中國家機關與公民社會間關係的認知。本研究分析政策利害關係人對於淡水河流域治理之認知類型後發現，各認知類型仍以國家機關為治理過程中主要的行為者，治理過程中更多公民社會行為者的參與，並不意味著這些行為者就應該分享決策的權力，換句話說，在政策利害關係人間，治理模式應該由國家機關中心轉變為公民社會中心的認知並沒有形成。

關鍵字

治理 ； 公民參與 ； 地方治理 ； 流域治理 ； Q方法論

並列摘要

The process of democratization began after the martial law was lifted in 1987. Within 20 years, Taiwan experienced major political changes such as the first reelection of the congress, the first direct election of the president, and the first time of party alternation in power. These changes demolished the old Kuomintang centered political system, and weakened governmental control over civil society. Almost at the same time, the concept of ”governance” has emerged and become popular in the field of public administration. It is argued that government is no longer the only dominant actor in providing public services. However, when more and more actors of civil society participate in the governing process, does it mean that the model of governance will be transformed from a traditional state-centered model to a civil society-centered model? Based on the role of government played in the process of governance, Pierre and Peters (2005) developed five models of governance, including the etatiste governance model, the liberal-democratic state governance model, the state-centric governance model, the Dutch governance school, and governance without government. In fact, these five models represent five different relationships between government and civil society during the process of governing. Because of the two practical and theoretical developments discussed above, the old relationship between government and civil society in Taiwan has to be changed as well. In Taiwan's policy context, environment governance is one of the policy areas that people care about most. Therefore, this research utilizes Q methodology to conduct a case study on the governance model of Tamsui River Basin. It intends to reveal different patterns of policy stakeholders' perceptions on the relationship between state and civil society in the Tamsui River Basin's governing process. By analyzing policy stakeholders' different patterns of perceptions, this research finds that state is still deemed as the main actor in the governing process. In addition, when more civil society actors participate in the governing process, it does not mean that these actors should share the power of making policy decisions. In other words, among policy stakeholders, the perception that the model of governance should be transformed from state-centered to civil society-centered has not emerged.

並列關鍵字

governance ； citizen participation ； local governance ； governance of river basin ； Q methodology

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