An easier solution is to use instr
:
SELECT * FROM users u
WHERE instr(',' || :P5_USER_ID_LIST ||',' ,',' || u.user_id|| ',', 1) !=0;
tricks:
',' || :P5_USER_ID_LIST ||','
to make your string ,45,4932,20,19,
',' || u.user_id|| ','
to have i.e. ,32,
and avoid to select the 32
being in ,4932,