政府公關與政策推廣： 政策溝通策略之個案分析

政策溝通對於政策執行有其重要性，若溝通不良將使政策窒礙難行，甚至可能造成社會動盪與不安，例如過去馬英九政府嘗試推動ECFA相關政策時，曾引發太陽花學運的反彈，蔡英文政府在一例一休、年金改革，與美國豬肉進口等議題上亦引起爭議，若回顧過去國內有關政策溝通文獻，可發現多半為國家文官教材及研究報告，而既有的學術研究也偏重從政策行銷或危機溝通的角度探討。為能更深入體察現行政府外部政策溝通之態樣，了解其溝通過程及影響因素等，本研究以臺中市政府觀光旅遊局「中進中出」政策為個案，透過不同階層之政府人員與外部利害關係人的深度訪談，以及相關政府資料之文獻分析，針對政策溝通之事前研究、溝通目標訂定、溝通過程之執行，與效益評估等面向進行觀察與歸納。研究發現，目前政策溝通目前未有標準作業方式，企劃過程與溝通決策多仰賴個人經驗，因此組織內部人員之認知易存有差異，其中組織本身的文化，如高層之管理作風更是影響甚鉅；研究也發現，實際政策溝通的過程較過去相關的學理框架更為簡化，所設定的溝通目標偏向質化，對於溝通效益的評估並不重視，與理想上政府文官所受之訓練可能存有些落差；可喜的是，政策溝通能夠因應情況對不同利害關係人提出不同溝通作法，其中包含正式與非正式的溝通方式，有助達到最佳效益。本研究最後則為類似政策之溝通作業流程及新媒體應用提供建議，期望能對未來臺灣政府機關在政策溝通之學術研究及實務面有所助益。

關鍵字

政策溝通；利害關係人

並列摘要

Public communication is critical to policy implementation. Unsuccessful communications hinder policy implementation, even causing social upheaval and unrest. For example, in the past, when the Ma Ying-jeou government attempted to promote policies related to the Economic Cooperation Framework Agreement, it triggered oppositions that led to the Sunflower Student Movement. Similarly, policies introduced by the Tsai Ing-wen government, such as the amended Labor Standards Law, retirement fund reform, and the import of pork from the United States, also generated disputes in the society. Past literatures on policy communication in Taiwan, however, could only be found among teaching materials for civil servants and research reports, while existing academic research were also limited to discussions on policy marketing and crisis communication. In order to make a close observation of how the government communicates about policies with its external publics, including the communication process and the impact factors, the case of the “Arrive in Taichung and Depart from Taichung” policy launched by the Tourism and Travel Bureau of Taichung City Government was studied. Through in-depth interviews with government personnel at different levels and external stakeholders, as well as analysis of relevant government documents, the current study examined the research, objectives, implementation, and evaluation in the communication process. The findings showed that there were rarely standard operation procedures for policy communication in the government. The planning process and communication decisions mostly relied on personal experiences. Consequently, there might be little consensus internally among the personnel. The culture of the organization, such as the management style of the upper-level, on the other hand, played a more critical role. Additionally, the process of policy communication, in fact, was more simplified than the theoretical frameworks proposed by previous scholars. The communication goals were generally more qualitative, with limited attention to the outcome evaluation, showing a gap from what was ideally suggested in the civil servant trainings. Fortunately, situational factors were weighed into the considerations for using formal and informal communication methods, which seemed to be optimally adopted for different stakeholders. Suggestions were made at the end of the study on the communication process and use of new media, in hopes to lending insights for future research and practices in policy communication in Taiwan.