公民參與文化資產保存審議之研究-以民主立方體為分析取徑

Abstract

本研究之目的在於以公民參與之角度，檢視《文資法》上關於公共審議與參與之各項程序，並審視政策情境與法律環境，試圖在解釋論上提出看法。在文獻分析部分，首先評述民主發展的軌跡中的公民參與價值，並根據國內外文獻的定性研究，重新詮釋公民參與的意義與能動性；其次，以Sherry R.Arnstein的公民參與階梯理論重構公民參與文化資產保存的歷程，並梳理審議情境中的各利害關係人及其偏差動員；另外盤點文化公民權的發展與法律環境；最後，點出中央與地方垂直治理的困境，可能成為執行文化資產保存政策的變數。 另外，根據文資保存審議的政策情境修正Archon Fung提出的民主立方體模型，並依三維度之間的作用面，設定「參與者與溝通模式」、「專家治理與公民角色」、「行政專業化與政治目的」三大面向進行訪談，審視目前國內公民參與重大文化資產保存爭議所面臨的困境。 最後，本研究提出以下發現與建議： 一、我國公民參與文化資產保存的軌跡逐漸邁向「公民權力」的實質參與階段，文化資產的詮釋權不再專屬於國家，而是一個重視公民參與價值的過程，不但可以促進文化資產公共化的討論，也是文化公民權的體現。 二、以民主立方體分析公民參與文資保存審議的困境，不同的參與者之間產生文化資產價值的詮釋碰撞時，將文資保存的議題公共化，可降低偏差動員帶來的擾動；建立專家與公民競合的行動策略，可為民主增值；擺脫地方文化治理的路徑依賴、強化中介組織可化解行政與政治二元化的角力。 三、以公私協力、平等參與、公開透明為核心，建置行政效能與公民治理共構的文資保存審議機制。政府應界定責任、創造友善的審議環境、界定公民參與和影響力的範圍；公民應學習賦權與課責，獲得更多的參與機會和治理權力，提升參與意願，適度參與並避免參與暴力。 台灣的公民充份體現「沒有人是局外人」的積極力量，帶動一波公私協力治理的浪潮，吾人得以檢視文化資產保存進程上的盲點與不足，希能經由公民參與機制的實踐經驗來檢視民主治理的本質與不足。

This study seeks to examine, from the perspective of citizen participation, the procedures of public deliberation and participation set out in the Cultural Heritage Preservation Act and to review the relevant policies and laws, with a view to putting forward views on the interpretation theory. The literature reviews first comments on the value of citizen participation in democratic development. Based on the definitive studies in local and overseas literature, the meaning and the agency of citizen participation is reinterpreted. Next, the process of citizen participation in culture preservation is reconstructed, using Sherry Arnstein's theory: A Ladder of Citizen Participation, with an analysis of various stakeholders involved in the deliberative policy process and their mobilization of bias. Moreover, the development of cultural citizenship and the legal environment are covered. Lastly, the dilemma of tackling the difficulties of vertical governance between the central and local governments is highlighted, which may be a variable in the implementation of cultural heritage preservation policies. In addition, based on the policy situation of the cultural preservation review, the Democratic Cube Model put forward by Archon Fung is amended, and interviews conducted from the dimensions of the Participant and Communication Mode, Expert Governance and Citizens’ Role, and Administrative Specialization and Political Purposes. From the viewpoint of citizen participation in the above three-dimensional thinking, the predicament faced by Taiwan in relation to domestic citizen participation and major cultural heritage preservation disputes is examined. Lastly, the study puts forward the following findings and recommendations: First, the trajectory of citizens' participation in the preservation of cultural heritage in Taiwan is gradually moving towards authentic participation. The right to interpret cultural heritage is no longer exclusive to the state, but is a process of attaching importance to the value of citizen participation. Not only can it promote discussion on the publication of cultural heritage, but it also embodies cultural citizenship. Secondly, using the Democratic Cube Model to analyze the dilemma of citizen participation in the preservation of cultural heritage, this study finds that publicizing the issue of cultural preservation can reduce the disturbance caused by the mobilization of bias, that building an action strategy accommodating competing experts and citizens can add value to democracy, and that breaking away from reliance on local cultural governance and strengthening intermediary organizations can resolve the struggle between the executive and politics. Thirdly, with public-private partnership, equal participation, and openness and transparency at the core, a review mechanism should be established for the preservation of cultural efficiency and citizen governance. The government should define responsibilities, create a friendly deliberative environment, and define the scope of citizen participation and influence. The citizens should learn about empowerment and responsibilities, seek to gain more participation opportunities and governance power, to enhance their willingness to participate, to have moderate participation, and to avoid participating in violence. The citizens of Taiwan, when they fully exercise the positive force of 'No One Is An Outsider' and create a wave of public-private partnerships, can examine the blind spots and shortcomings in the process of cultural heritage preservation. It is hoped that they can examine the essence and inadequacy of democracy through the implementation of the civic participation mechanism.