防疫風險治理中的溝通過程及信任建立： 新北市防疫旅館的治理經驗

Abstract

本文是分析政府因應新型冠狀病毒肺炎（Covid-19）所做之應對行動的經驗研究，包含政府如何進行評估、與非政府部門進行溝通並制定相關政策。本文借用風險治理（risk governance）理論，試圖從宏觀層面解析政府部門做出的行動。另一方面，筆者也以自身在新北市議會服務的經驗，結合訪談第一線防疫旅館工作人員，呈現出防疫旅館政策的制定與執行中的溝通過程。

本文可分為三個部分，第一部分回顧了風險治理理論，描述在危急中的治理應以信任危機處，並以協力治理理論探討信任建立的具體描述。第二部分則是分析中央、地方政府在防疫旅館政策中與人民的互動關係，分析民意代表的質詢、提案紀錄，指出政府與民眾在疫情中的溝通困境；也分析訪談第一線工作人員的紀錄，指出政府在疫情期間的溝通不佳，且民意代表在政策溝通中扮演重要角色。第三部分則是將新北市的經驗與理論進行對話，試圖得出分析性知識。

本文分析政府與非政府部門的合作模式，包含制定過程、政策內容，觀察政策討論的宏觀層次；並分析人民觀感、政策執行與具體實踐方式，試圖勾勒政府政策溝通的微觀層面。本文指出新冠疫情的政策溝通有「分工繁瑣」、「名詞誤導」兩大困境，並提出可能的解決方式：政策溝通以「準」補「廣」，以及重視基層民代在溝通中的功能，也發現政策執行的關鍵是里長。本文也在最後提出概念上的政策建議，試圖從新北市的防疫旅館經驗中獲得完善政府治理的養分。

This paper is an empirical study of the government's response to novel Coronavirus pneumonia (Covid-19), including how the government conducted assessments, communicated with nongovernmental agencies, and developed relevant policies. In this paper, I try to analyze government departments' actions at a macro level by borrowing from risk governance theory. On the other hand, I also use my own experience serving on the New Taipei City Council, combined with interviews with front-line hotel workers, to present the communication process in the formulation and implementation of hotel policies.

This paper can be divided into three parts. The first part reviews risk governance theory and describes the trust crisis as the basis for governance in a crisis. It uses collaborative governance theory to explore trust building. In the second part, the study examines how central and local governments interact with the population for the purpose of preventing epidemics in hotels. The records of questions and proposals from public opinion representatives are analyzed to point out the communication dilemma between the government and the people during the epidemic; the records of interviews with frontline workers are also analyzed to point out the poor communication between the government during the epidemic and the important role of public opinion representatives in policy communication. In the third section, I try to draw analytical knowledge by dialoguing New Taipei City's experience with theory.

This paper analyzes the cooperation model between the government and non-government sectors, including the formulation process, policy content, and observes the macro level of policy discussion; and analyzes people's perceptions, policy implementation, and specific practices in an attempt to outline the micro level of government policy communication. This paper points out two major dilemmas of policy communication in the epidemic: "cumbersome division of government" and "misleading nomenclature". This paper proposes possible solutions: to supplement "broad" with "accurate" policy communication, and to emphasize the function of grassroots representatives in communication, and also finds that the key to policy implementation may be the neighborhood representative (li jhang). The paper also concludes with conceptual policy recommendations, attempting to gather useful information for improving government governance. This is done from the experience of the epidemic prevention hotel in New Taipei City.