基層公務員的困境與自救之路：以「台灣警察工作權益推動協會」為例

Abstract

本研究以「台灣警察工作權益推動協會」為核心個案，探討基層公務員在制度性限制下如何發展替代性的政策參與模式，並分析其行動如何形塑公共治理中的政策敘事、資源互動與制度回饋。該協會成立時對外即使用 Taiwan Police Union 作為英文名稱，惟此名稱僅為對外溝通之譯名，並不代表其法律身分為工會組織；實際上，該協會係依《人民團體法》登記成立之職業型協會，並非現行法制下具備集體協商權與罷工權之勞動工會。研究者結合敘事政策架構（Narrative Policy Framework, NPF）與政策倡議聯盟架構（Advocacy Coalition Framework, ACF），建構分析框架，以理解職業型協會如何在缺乏正式協商制度、高度科層與政治中立義務的情境中，逐步展現政策能動性。 研究資料涵蓋台灣警察工作權益推動協會（下稱警工會）自2014年至2024年間的重要行動紀錄、政策文本與深度訪談資料。研究結果顯示，警工會的形成動機源於長期制度壓力、組織文化抑制與缺乏正式參與管道的結構性困境。在《工會法》排除公務員組織權的前提下，協會選擇以《人民團體法》作為替代性制度入口，並透過「制度改善」的價值敘事建構行動正當性，使其能在不觸及公務員法律風險下介入公共討論。 研究亦發現，警工會透過角色設定、因果邏輯與價值訴求等敘事策略，將基層勞動議題由個別困境提升為具有公共風險與治理意涵的政策問題，進而提升議題能見度與政策接受度。在跨職系合作面向上，其與消防、矯正、書記官等基層公務員團體形成鬆散而互補的倡議聯盟，透過議題串連、政策文本共製與制度對話，擴大政策影響力並降低行動風險。 在制度互動層次上，本研究指出行政體系普遍採取「低風險、漸進吸納」的回應模式，透過行政指引、細部流程調整或補充措施，逐步提升工時治理、勤務安全與教育訓練等議題的制度化程度。此類回應雖非全面改革，卻能逐步累積制度慣性，使改革議題持續留在行政視野中。 最後，研究發現政策回應已形塑行動者的策略學習，使警工會及其聯盟逐漸由抗爭式訴求轉向以制度語言、專業研究及跨界協作為核心的政策參與型態。此一循環亦揭示基層公務員在制度既有限制中仍具備集體能動性，並反映台灣公共治理在近年呈現出更具開放性與合作性的發展趨勢。 本研究的貢獻在於補足台灣基層公務員制度參與研究的不足，並提出行動者如何在制度縫隙中創造參與空間的理論化分析，亦對公共治理、職業型協會發展與制度改革研究具有實務與學術參考價值。

This thesis examines how frontline civil servants develop alternative modes of policy participation under institutional constraints, using the Taiwan Police Union (TPU) as a core case. Although Taiwan Police Union was used as the association’s English name in its early external communications, the organization is not a labor union in a legal sense; it is a professional association registered under Taiwan’s Civil Associations Act. Integrating the Narrative Policy Framework (NPF) and the Advocacy Coalition Framework (ACF), this research analyzes how a professional association gradually accumulated policy agency in the absence of formal bargaining institutions within a highly hierarchical civil service system. Based on action records, policy documents, and in-depth interviews from 2014 to 2024, the findings show that the TPU emerged in response to long-term institutional pressure and limited participatory channels. By adopting the Civil Associations Act as an alternative institutional entry point and framing its actions around “institutional improvement,” the association reduced legal and political risks while gaining public legitimacy. Through narrative strategies linking frontline labor issues—such as excessive working hours, occupational safety, and limited administrative participation—to broader public values, the TPU increased issue visibility and policy acceptance. It also formed loose advocacy alliances with other frontline public servant groups, expanding influence through cross-sector collaboration. Institutional responses were generally incremental and partial, yet they produced cumulative effects in areas such as work-hour governance and duty safety. These responses facilitated strategic learning, prompting a shift from confrontational claims toward policy participation based on institutional language and professional expertise. This study contributes to understanding how institutionally constrained public servants create participatory space within governance structures, offering insights for public governance and institutional reform in Taiwan.