我國公務人員政黨輪替前後報紙形象之分析：以聯合知識庫為例，1996-2004

The Newspaper Images of Bureaucrats in Taiwan before and after the first party turn-over: An Analysis of the United Daily News, 1996-2004

2000年的政黨輪替為台灣民主發展立下重要的里程碑。除了政務領導的品質以外，常任文官的形象成為治理績效形成的重要因素，然而，過去學界少有研究公務人員於傳播媒體上的表現與形象；本研究藉由分析新聞報導內容，探討公務人員於傳播媒體上的形象及評價，作為民主時代政府公關與行銷的知識基礎。本研究以聯合報系的「聯合知識庫」中從1996年5月20日到2004年5月19日有關公務人員的新聞報導，以傳播學界的「內容」與「框架」分析法，回答下列問題：（一）公務人員於報紙上的形象（報導框架）為何？其形象是否於我國第一次政黨輪替後有所改變？（二）報紙對公務人員的報導立場（或評價）為何？其報導立場是否因2000年新政府的上台而有所改變？（三）而我國首次政黨輪替後是否真有政務官與事務官之間的磨合問題存在？即政黨輪替之後的負面公務人員新聞是否多引用來自政務官的消息來源？研究結果發現：（一）公務人員新聞報導框架有「大人」、「公僕」及「員工」等三種，以公僕框架最多（約七成），2000年政黨輪替前後，新聞框架分怖並無改變；（二）公務人員報導多為中立立場（約四成四），負面報導（約四成一）居次，政黨輪替後，公務人員中立報導下降，正面與負面報導增加；負面新聞以公僕框架最多，但就每一新聞框架來看，卻是使用大人框架的新聞最常出現負面報導；（四）政黨輪替後公務人員的負面消息來源中，政務人員的比例上升，顯示政務與事務關係的維繫，也是政府形象塑造問題的一環；（五）政黨輪替前後，公務人員在各種框架下的負面新聞比例沒有改變，但是「員工」與「公僕」新聞從中立轉為正面的趨勢顯著，可以作為政府尊重媒體民主政治「看門狗」的前提下，公關作為可以切入的方向。

In a democratic polity, one of the important aspects of governance is public opinion. After the first party turn-over in year 2000, Taiwanese bureaucrats have entered into a new era of governance with public relations. Government need to build reliable images in people's head and try to earn their support for the policies. However, what are the images of bureaucrats in people's head is an interesting but unsolved question for the field of Taiwanese public administration. To answer the question, this researcher attempts to analyze the new reports concerning bureaucrats in the media. By using content analysis and frame analysis, this research uses the data collected from the news in the United Daily News to answer the above questions. Between the years of 1996 to 2004, 998 sample news are selected from the database of UDNDATA. The findings are as follows: First of all, as a whole, there are three types of newsframes of bureaucrats utilized: ＂mandarins＂, ＂public servants＂, and ＂employees.＂ The newsframe of public servant appears to be the most popular one. However, there is no difference in newsframe between the news before and after the first party turnover in 2000. Secondly, bureaucrats' news is covered in the tone of neutrality and negativity. But After the first party turn-over, the amount of neutral news is decreased, and the amounts of positive and negative ones are increased. Most negative coverage is in the newsframe of ＂public servants＂. On the contrary, the proportion of negative coverage in the ＂mandarins＂ is higher than other frames. Thirdly, although the amount of bureaucrats' news from appointed and elected officials is decreased, the proportion of the negative ones is increased after the year of 2000.