客家基層官僚代表性影響政策結果之探討：桃園市案例研究

An Exploration of How Hakka Street-level Bureaucratic Representation Affects Policy Outcomes: A Case Study of Taoyuan City, Taiwan

依據當代代表性官僚理論，文官的社會組成（消極代表性）可經由文官本身的價值與行動（積極代表性），也可經由民眾基於信任的正當性而產生的合作與順服行為（象徵代表性），進一步影響政策的結果。本文在「基層官僚」與「行政行為」兩個層面深化其理論論述，經由深度訪談桃園市推動客語復振計畫的一般行政機關與客家行政機關的基層官僚與民眾，探討基層官僚在提供服務與審查申請之時，展現的裁量權與認同凸顯，並分析民眾對於基層官僚的信任感及相應的行動，以及他們對於該計畫結果之評價。
研究發現如下：一、一般行政機關與客家行政機關的基層官僚，大致上可將消極代表性轉化為積極代表性的價值與行動，然而本身卻沒有對於客語復振之政策結果明顯表達正向的評價。二、民眾對於一般行政機關與客家行政機關的象徵代表性有明顯差異。三、一般行政機關與客家行政機關的積極代表性基於不同的緣由。四、客家行政機關的官僚代表性展現客語復振計畫具備了依從式政策的性質。本文認為臺灣客家基層官僚代表性雖然可能形成依從政治，但其所引導正向的政策結果以及發揮民主治理的功能亦不容抹煞。根據研究發現，本文也提出在客家文化重點發展區之中，一般行政機關以及客家行政機關應該提升客籍基層官僚的比例與培訓，以及政府應該培力客家第三部門的政策建議。

According to modern theories of representative bureaucracy, the social composition of bureaucrats (passive representation) can influence policy outcomes via the values and actions of bureaucrats (active representation), and can also produce a sense of trust, cooperation, and obedience among citizens who share social origins, thereby resulting in citizen cooperation and the production of more effective policy outcomes (symbolic representation). This article expands on the theoretical discourse at the levels of“street-level bureaucrats”and“administrative behavior”. In-depth interviews were conducted with members of the general public and with street-level bureaucrats from general administrative agencies and Hakka administrative agencies that were promoting the Hakka Revitalization Plan in Taoyuan City. The research goal was to investigate the discretion and the salience of the identity exhibited by street-level bureaucrats when providing services and reviewing applications, to analyze the public’s trust in and behavior toward street-level bureaucrats, and to discover how these two aspects collectively reflect the appraisal of the plan’s outcomes.
The research findings are as follows: 1. The street-level bureaucrats from both general administrative agencies and Hakka administrative agencies were capable of transforming passive representation into the values and actions of
active representation. However, they did not clearly express a positive appraisal of the policy outcomes. 2. Among the public, general administrative agencies symbolized a low level of representation, whereas the Hakka administrative agencies symbolized a considerable level of representation. 3. The active representation of general administrative agencies and Hakka administrative agencies was based on different factors. 4. The bureaucratic representation of Hakka administrative agencies demonstrated the compliance-oriented nature of the Hakka Revitalization Plan. In this article, it is argued that although Taiwanese Hakka street-level bureaucratic representation can manifest as compliance politics, the appraisal of positive policy outcomes and the function of democratic governance cannot be overlooked. According to the findings, this article suggests that the Taiwanese government should not only increase the proportion and training of Hakka street-level bureaucrats in Hakka Cultural Regions, but also empower the Hakka third sector.