誰來參與？誰有權參與？一直是公共事務營造民眾參與時面臨的一大難題。在現代國家成員眾多的脈絡下，任何公共事務皆由公民行使其直接民權表達意見顯得窒礙難行，然代議制度代表性（representativeness）不足等問題長此以往屢屢為人所詬病。由此等問題應運而生的利害關係者（stakeholder）概念，提供了一個實際可行的觀點，主張由個別公共事務利害相關的民眾來參與。本文以防洪計畫為研究對象，以利害關係者相關論述為基點建構出「防洪計畫利害關係者界定架構」，該架構因應防洪計畫之特性，能以多元方法界定多元利害關係者，非但在一定程度上回答「究竟政府在執行防洪計畫前、規劃初期應該聽取誰的聲音？」此一重要問題，也降低於防洪計畫營造民眾參與時，某重要類別利害關係者被排除在外的機率，並且現實可行，而能為規劃者所使用。時值民意日趨高漲的此刻，期望各種多元價值能據此忠實地傳遞出來，並得到善意的關注，防洪計畫更為大眾感到滿意。

When getting people involved in public affairs, two important questions arise: Who will participate? And who has the right to participate? In the context of a large modern state, having all civilians exercise their civil rights directly is not feasible. Additionally, a lack of representativeness in representative government has been criticized repeatedly. To overcome such difficulties, the concept of stakeholders, defined as those who have a stake in certain public affairs, is applied. A
flood project is the focus of this study. Based on stakeholder theory, a framework for stakeholder identification for a flood project is constructed to answer the question: “Whose voice should be heard before the government implements a flood project?” This framework also reduces the probability that important stakeholders will be excluded from stakeholder groups. The proposed framework identifies multiple stakeholders via different methods and takes feasibility into consideration. We hope that through this framework, diverse opinions will be heard faithfully and considered, and that flood projects will satisfy an increased number of stakeholders.