多元公共參與的途徑：決策權力、參與場域與關係網絡之互動分析

Pathways to Pluralistic Public Participation: An Analysis of Interaction between Decision-making Power, Participatory Arenas, and Relationship Networks

公民社會為近年公共行政領域的關鍵概念，其被認為能夠整合並補足政府部門及資本市場無法妥善提供的社會機能與服務。然而，我國公民組織的發展因漸受政府部門掌握計畫經費與行動資源，使第一、二部門在政治與經濟資本優勢下得成立其第三部門之代理人，導致公民組織無法在切割公共／非公共立場下維持監督職責，更減損生產論述及公共倡議的量能；對此，我國研究文獻較聚焦於公民參與對治理正當性的修復或政策成形的影響，但針對上述困境之突破、重構公民社會之途徑，仍缺乏相關論述和長期性實證觀察。因此，本研究首先檢視我國公民社會發展的瓶頸，並藉由Michael Walzer的公民社會之多元社團生活共構之觀點，提出「決策權力」、「參與場域」、「關係網絡」三項要件之互動將構成普同、多元公共參與途徑之論述；繼而，為以該論述檢驗公民社會的形成或阻礙之途徑，本研究以高雄市路中廟社區為實證案例，採用參與觀察和深度訪談，探討並比較該社區公民參與（2018年「汕頭公園公民參與改造案」與2021年「公民咖啡館×i-Voting」）對公民社會之形塑與後續影響。研究結果發現，仰賴在「參與場域」中具有主導性「決策權力」的公民組織擁有之既存「關係網絡」來動員參與，雖能有利於達成當次公民參與之預期規模與目標，然卻會由於前述三項要件互動之影響，於公民參與後鞏固了既有「關係網絡」、促成利益共同體的形成，從而在長期上降低社區的多元觀點表達及公共審議之可能。

Civil society is a pivotal concept in public administration to integrate and supplement social functions and services that government departments and capital markets cannot adequately provide. However, civil organization development in Taiwan has been influenced by government departments’gradual control of project funding and action resources, so the public and private sectors with political and economic capital advantages can establish their agents for the third sector. This phenomenon has led to the inability of civil organizations to maintain their supervisory responsibilities without separating public and non-public stances, thereby undermining their capacity for discourse production and public advocacy. Existing literature in Taiwan has focused on the influence of citizen participation on governance legitimacy restoration and policy formulation; however, there is a lack of relevant discourse and long-term empirical observations on breakthroughs in the aforementioned dilemma and the pathways for reconstructing civil society. Hence, this study first inspected the constraints on civil society development in Taiwan and then, based on Michael Walzer’s concept of the pluralism of associational life in civil society, proposed a discourse taking the interaction between the three components of“decision-making power,”“participatory arenas,”and“relationship networks”as constituting pathways to universal and pluralistic public participation. Afterward, to examine the pathways facilitating or hindering civil society formation with the proposed discourse, this study took the Luzhongmiao community, Kaohsiung, as the case. Through participant observation and in-depth interviews, this study explored and compared the outcomes and subsequent impacts of multiple times of citizen participation (the“Shantou Park Citizen Participation Redevelopment Project”in 2018 and the“Citizen Café×i-Voting”in 2021) on civil society. Results revealed that although mobilizing participation through the existing“relationship networks”of the civil organization with dominant“decision-making power”in the“participatory arena”could facilitate the achievement of the expected scale and objectives of that time of citizen participation, the interactive impact of the three components subsequently consolidated the existing“relationship networks”and triggered the formation of the interest commonwealth, thereby reducing the long-term potential for the community’s pluralistic perspective representation and public deliberation.