台灣環境資源部組織再造的政經分析，1945-2019

The Political Economy of the Reformulation of the Ministry of Environment and Natural Resources in Taiwan, 1945-2019

張怡茹(Yi-Ju Chang)

指導教授 ： 蕭全政

國立臺灣大學/社會科學院/政治學研究所/碩士(2019年)

https://doi.org/10.6342/NTU201902379

摘要

本研究主要在探討環境資源部成立的背景及組織變遷的過程，以及影響各階段組織變遷的因果脈絡。在國內外政治、經濟、社會脈絡的交互影響下，台灣的環保行政體系逐級提升，且組織定位及職能角色愈具前瞻與宏觀。國際上，地球高峰會議召開後，更將永續發展的風潮帶向全球。台灣歷經威權統治、威權轉型、民主鞏固時期，政府對於環境保護的認知及行動，一路從萌芽到發展，再提升到永續進化期；對於環境治理的焦點，從「公共衛生、疾病防治」到「環境保護」，進而到「環境保育及整體資源管理」。
　　行政院組織改造工程自1987年啟動後，歷經多次會議研商組織架構，嗣後，行政院組織法研修小組於1998年首次提出設立環境資源部的構想。在行政院組織改造過程中，各界對於設立環境資源部普遍具有高度共識；然而行政院組織法修正通過迄今已9年，環境資源部的組織立法作業仍無法完成。在扁政府、馬政府、蔡政府時期，無論在行政院組織法修正，或是環境資源部組織法制定過程中，行政機關、立法委員、環保團體、學者專家等行為者對於環境資源部的組織安排均隱含不同的偏差，並依其稟賦進行偏差動員，而呈現不同版本的組織架構。
　　為了解不同階段的環境資源部組織設計所隱含的偏差及其變遷，在分析觀點與架構上，本研究採取歷史結構觀點、運用偏差動員理論，並以政治經濟角度分析台灣環保行政體系之發展，以及環境資源部組織再造過程中，各行為者在網絡中的互動關係、利害得失及其消長。本文認為透過回顧整個環保行政體系變遷和不同階段環境資源部的組織安排，以及梳理導致各階段組織變遷的因果關係和趨動力，將有助於理解並進一步解決組織改造面臨的實存問題。
　　本研究發現在不同時空條件的制約下，自利的行為者運用各種可能形塑特定政策、組織和制度安排的機會，呈現對其有利的利害得失關係，進而形塑出不同階段對於環境資源部組織安排的偏差，最後產生偏差動員的結果。在整個環境資源部組織再造的過程，大氣、水、土、林的場域中，無一不是偏差動員的現場，而所有的偏差均環繞在「開發」與「保育」的對立上。這種對立不僅阻礙環境資源部組織再造的進程，亦使環境資源部在環境資源管理上，從整合走向分散。行政機關的本位主義及組織利益、立法部門在常設委員會的預算審查權力及資源分配、水權和林業的經濟利益，使得環境資源部組織再造充斥政治和經濟的角力。

關鍵字

環境資源部 ； 環資部 ； 組織再造 ； 組織改造 ； 偏差動員

並列摘要

This study aims at analyzing the background of the establishment of the Ministry of Environment and Natural Resources (MENR) in Taiwan, the process of how this ministry reformulated, and the historical context within which the organization changed. Due to the interactions of both domestic and international factors from the political, economic, and social contexts, the environmental protection system of the government in Taiwan has been upgraded, and the organizational view has become more forward-looking and far-sighted gradually. After the Earth Summits, the trend of sustainable development has spread all over the world. In Taiwan, however, from the authoritarian regime, the authoritarian transition, to the democratic consolidation periods, the government’s recognitions and actions towards environmental protection became more and more mature and finally moved to the stage of sustainability. In particular, the focus of the environmental governance has transformed from “public health and infectious disease prevention”, to “environmental protection”, and then to “conservation and the management of environmental resources”.
After the Organizational Reform of the Executive Yuan launched in 1987, the ad hoc committee on the Organizational Law of the Executive Yuan convened frequently to discuss the organizational structure of the Executive Yuan. In 1998, it proposed the establishment of the MENR. During the process of the organizational reform of the Executive Yuan, this idea received a wide support from the general public. However, the fact is that the Organizational Law of the Executive Yuan passed in 2010 while the legislature process of the MENR has still been left unfinished. During Chen’s, Ma’s, and Tsai’s administrations, the administrative agencies, legislators, environmental interest groups, scholars or experts had different biases towards the reformulation and they tended to launch the mobilizations of bias by their endowments to make the situation favorable to themselves.
With a view to understanding different biases implied in the organizational structures of the MENR during different periods, this study, from the political-economic angle, seeks to examine the development of Taiwan’s environmental protection system based on the historical approach and the theory of mobilization of bias. Meanwhile, it seeks to analyze the development of environmental protection system, and how the relevant actors interact with each other and use their resources in the network of the organizational reformulation. The study puts forwards the idea that by retrospecting and analyzing the changes of the environmental protection system, and the organizational arrangements of the MENR by the authorities at the different stages, it will be helpful to realize the cause-and-effect relationships and the driving forces of the reformulation of the MENR.
Lastly, this study finds that the relevant self-interested actors, constrained by different conditions of time and space, tend to mobilize the authorities to make the policy in their favor, and finally affect the arrangement of the MENR. The mobilization of bias is thus related to the contradiction between development and conservation, can be seen in the field of atmosphere, water, land and forest, and constitutes an obstacle to the MENR reformulation. The reformulation of the MENR is surrounded by the political factors of the parochialism of administrative agencies, the power of distributing government budgets by legislators, and the interests of the power of distributing water and forest resources. These factors shape the political agenda and inevitably make the organizational reformulation a political and economic tug of war.

並列關鍵字

Ministry of Environment and Natural Resources ； Reformulation ； Reinventing government ； Organizational reengineering ； Organizational reform

參考文獻

楊婉瑩，2002，〈立法院委員會的決策角色：以第三屆立法院為例〉，《問題與研究》，41(4)：83-113。

壹、中文部分

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王光旭、史美強，2016，〈行政院組織再造之歷史制度分析：1987-2012〉，王業立、傅恆德、宋興洲（編），《臺灣政經轉型下之制度變遷》，台北：獨立作家，頁285-330。

丘昌泰，2002ａ，〈從「鄰避情結」到「迎臂效應」：台灣環保抗爭的問題與出路〉，《政治科學論叢》，17：33-56。