基層官僚執行族群文化政策的代表性研究：桃園市都市原住民的豐年祭活動個案分析

Abstract

我國原住民族人口現今近半數居住於都市地區，都市原住民在文化傳承與族群認同上面臨更為嚴峻的挑戰。相較於既有研究，基層官僚於政策執行過程中如何發揮代表性，特別是在族群文化政策領域，仍有進一步探討之必要。而桃園市原住民族人口數為全國第二且多分布於都會區，並且桃園市政府設有原住民族服務員以及原住民族事務幹部組織等特殊制度，使其成為合適之分析個案。 故本研究以代表性官僚理論為分析架構，探討原住民族與非原住民族基層官僚在推動桃園市都市原住民豐年祭活動時，其在積極代表性與象徵代表性之差異，例如：對豐年祭活動的看法、裁量權的行使、民眾的信任等。本研究以質性研究為主，次級資料分析與參與觀察為輔。透過深度訪談法，蒐集12位來自桃園市原住民族行政局承辦人、原住民族服務員、區公所人文課漢人承辦人，以及原住民族協進會與相關社團法人之經驗與觀點。 研究發現顯示，原服員具備豐年祭活動之相關文化知識，並在活動規劃、資源協調與制度運作中展現較高程度的積極代表性。並且族語或文化知識的具備會增加民眾對原服員的信任感。而漢人公務員則將豐年祭視為例行性的行政業務，其理解與介入行動皆相對有限與被動。然而，本研究亦發現桃園市區豐年祭活動在經年累月的執行下逐漸具有預算、流程近乎一致的定型化現象，使得原服員難以積極行使裁量權並發揮代表性。此外，桃園市第二代都市原住民的自我認同也使得象徵代表性受到限制，並使桃園市豐年祭活動的意義與價值產生轉變，影響原服員推動豐年祭活動的順服程度。 因此，本研究最後對於桃園市的原住民族服務員、區豐年祭活動以及原住民族事務幹部組織的制度設計提出政策建議，以期提升都市原住民族文化政策之執行成效與正當性。

Nearly half of the Indigenous population in Taiwan now resides in urban areas, where urban Indigenous peoples face more severe challenges in cultural transmission and ethnic identity. Compared with existing studies, there remains a need for further exploration of how street-level bureaucrats perform representative roles during policy implementation, particularly in the field of ethnic and cultural policy. Taoyuan City, which has the second-largest Indigenous population in Taiwan—largely concentrated in urban areas—and has established special institutions such as Indigenous Service Workers and Indigenous Affairs Cadre organizations, therefore constitutes a suitable case for analysis. Accordingly, this study adopts representative bureaucracy theory as its analytical framework to examine the differences between Indigenous and non-Indigenous street-level bureaucrats in terms of active representation and symbolic representation when promoting urban Indigenous Harvest Festival activities in Taoyuan City. These differences include perspectives on the Harvest Festival, the exercise of discretion, and public trust. This study primarily employs qualitative research methods, supplemented by secondary data analysis and participant observation. Through in-depth interviews, data were collected from 12 individuals, including case officers from the Taoyuan City Indigenous Peoples Administration, Indigenous Service Workers, Han Chinese case officers from the Humanities Sections of district offices, and members of Indigenous associations and related nonprofit organizations. The findings indicate that Indigenous Service Workers possess relevant cultural knowledge related to the Harvest Festival and demonstrate a higher level of active representation in event planning, resource coordination, and institutional operations. Moreover, proficiency in Indigenous languages or cultural knowledge enhances public trust in Indigenous Service Workers. In contrast, Han Chinese civil servants tend to regard the Harvest Festival as a routine administrative task, with relatively limited and passive understanding and involvement. However, the study also finds that, over years of implementation, district-level Harvest Festival activities in Taoyuan City have gradually become standardized, with nearly uniform budgets and procedures, making it difficult for Indigenous Service Workers to actively exercise discretion and fulfill representative roles. In addition, the self-identification of second-generation urban Indigenous peoples constrains symbolic representation and leads to shifts in the meaning and value of Harvest Festival activities in Taoyuan City, thereby affecting Indigenous Service Workers’ level of compliance in promoting these events. Therefore, this study concludes by offering policy recommendations regarding the institutional design of Indigenous Service Workers, district-level Harvest Festival activities, and Indigenous Affairs Cadre organizations in Taoyuan City, with the aim of enhancing the effectiveness and legitimacy of urban Indigenous cultural policy implementation.