公共服務的共同生產與共同創造：客語生活學校政策實證研究

Co-production and Co-creation of Public Services: An Empirical Study of Hakka Language Policy in Taiwan

藍於琛(Jesse,Yu-Chen Lan)

《政策與人力管理》 10卷2期 (2019/12) Pp. 115-160

https://doi.org/10.29944/PPM.201912_10(2).0004

摘要

臺灣的公共服務輸送伴隨著政治、經濟與社會而轉變，經歷了國家主導、民營化、民主治理三大階段。在演進的過程中，公民參與公共服務的輸送逐漸成為一個必要的過程；肯認社會中多元群體的權益更是不可忽視的環節。公民參與公共服務不但有助於政府落實公民參與的合法性，更能彌合政府在回應多元訴求時可能產生效能不彰的差距。因此，本文嘗試應用「共同創造」與「共同生產」做為探討臺灣少數族群語言政策的分析架構，並著重在客語生活學校政策的執行模式及其成果探討。藉由高雄市與臺東縣兩個個案的實證研究，本研究將高雄市的客語生活學校執行模式，界定為「政府主導公民積極參與的共同生產模式」，臺東縣則定位為「基層官僚與公民協力的共同設計模式」。研究發現：即便是同樣一項公共服務，在提供與輸送的過程中，最終接受服務者的所處的環境條件及實質需求，會影響服務提供與輸送的模式和成效。其次，透過與文獻的對話，再次檢視組織因素與公民因素對於公民參與公共服務的影響；同時根據高雄市與臺東縣兩個個案觀察，提出有別於文獻所歸納的影響因素與發現。最後聚焦於公共服務生產與輸送的結果以及對於政策目標的回應程度。研究發現為了能真正提供有利於最終接受服務者的公共服務，政策目標的「實質內容」已在服務的生產與輸送的過程中產生了轉變。

關鍵字

公共服務 ； 共同創造 ； 共同生產 ； 客語生活學校

並列摘要

The involvement of citizens in the creation and production of public services is one of the major topics in current public administration and public management research and practice. When citizens take a greater role in the design and implementation of public services, does this actually improve the services? Does co-production increase the democratic level of service delivery? Why would citizens want to make the effort of engaging in co-creation or co-production? And are public servants in turn interested in involving them? Answering these questions is not only relevant from a fundamental scientific point of view, but is potentially also helpful for practitioners that are in a constant need to improve the administrative practice of public policy making and public service delivery. In this paper, co-creation and co-production are roughly defined as a joint effort of citizens and public sector professionals in the initiation, planning, design and implementation of public services. We apply these concept as analytical framework for accessing the models and outcomes of Hakka language school policy in Kaohsiung City and Taitung County in Taiwan. This study has found that Hakka language school policy in Kaohsiung City can be defined as ＂state-led co-production＂ model, and Taitung County as ＂community collaborated co-creation model＂. This study is concluded with following findings: Even in the same public service, the environmental conditions and actual needs of the service provider will ultimately affect the mode and effectiveness of service delivery. Secondly, through the dialogue with the literature, we will once again confirm the influence of organizational factors and civic factors on citizen participation in coproduction and co-creation. At the same time, according to the two case observed, we propose alternative factors that are different from the previous literature. Lastly, the ＂substantive content＂ of policy objectives has been changed in the process of co-production in order to truly deliver public services that are conducive to the ultimate recipients of services.

並列關鍵字

Public Services ； Co-creation ； Co-production ； Hakka Language School