以政策執行觀點檢視我國有機農業驗證機構的運作與管理

近年來，隨著對於環境以及健康的意識高漲，有機農業漸漸的受到民眾的重視，投入有機農業耕種的人數逐年成長，也有越來越多的消費者購買有機農產品。過去較少消費者的時期，消費者直接向農民購買，可以親眼確認是否為真的有機耕種的農產品。但隨著需求增加，消費者無法直接向農民購買，因此政府訂定了相關規範來確保有機農產品。政府發行了有機標章，透過驗證的方式來確保有機農產品，制度也從原先農委會獨立執行驗證，發展到農委會認證民間機構，由民間機構進行驗證，最終發展到現在的第三方驗證。第三方驗證是由第三方的認證機構，認證驗證機構，並由驗證機構去執行驗證。其中有機驗證的執行，除了農委會、認證機構及驗證機構外，受到許多因素的影響。　　傳統探討有機農業，大多探討有機標章對於消費者的效果，較少有探討前端有機驗證執行的過程，本研究試圖透過政策執行的觀點，檢視我國有機驗證的政策執行過程。傳統探討政策執行，學者透過政策執行模式，歸納出常常影響政策執行的因素。其中包含：政策目標與標準、上級機關、執行機構以及環境因素。前面提到，有機驗證執行過程中，有許多因素會影響，是個非常複雜的過程。本研究旨在透過政策執行模式，檢視目前有機驗證的執行上是否遇到問題。　　本研究採取深度訪談法，在2016至2019年間訪談了農委會、驗證機構、專家學者以及農民共13位，後續透過政策執行模式框架針對資料進行分析。本研究分析後發現，上述提到的各個因素中確有影響有機驗證執行的問題。主要問題包含：主管機關輔導及管制立場的衝突以及績效評估標準無法反映現實、上級機關多頭馬車的管理、驗證機構收費及流程彈性可能造成的惡性競爭、稽核人員的聘用及現場表現影響驗證品質、景氣程度以及民眾影響有機驗證的執行。針對這些問題，本研究提出建議如將輔導業務有效的委託、績效評估標準納入更多指標、加強上級機關間的聯繫、加強針對稽核員的管理機制以及有機驗證導入科技應用。

關鍵字

有機驗證；有機農業；有機標章；第三方驗證；政策執行

並列摘要

In recent years, with the awareness of the environment and health, organic agriculture has gradually received the attention of the people. The number of people who have invested in organic farming has grown year by year, and more and more consumers are buying organic agricultural products. In the past when consumers were not a lot, consumers could directly purchase from farmers and could see for themselves whether they were organically cultivated agricultural products. But as demand increases, consumers cannot buy directly from farmers, so the government has set relevant regulations to ensure organic produce. The government issued an organic seal to ensure organic agricultural products through verification. The system has also been independently verified by the former COA, developed to the CCA-certified civil institutions, verified by private institutions, and finally developed to the current third-party verification. The third-party verification is performed by a third-party certification body, a certification verification agency, and a verification agency to perform verification. The implementation of organic verification, in addition to the COA, certification bodies and certification bodies, is affected by many factors. 　　Traditionally, organic agriculture has been discussed. Most of them discuss the effect of organic seals on consumers. There are few processes to explore the implementation of front-end organic verification. This study attempts to examine the policy implementation process of organic verification in China through the perspective of policy implementation. Traditionally, policy implementation is implemented. Scholars use the policy implementation model to summarize the factors that often affect policy implementation. It includes: policy objectives and standards, higher authorities, executing agencies, and environmental factors. As mentioned earlier, there are many factors that affect the execution of organic verification, which is a very complicated process. This study aims to examine whether there are problems with the implementation of organic verification through the policy implementation model. 　　In this study, an in-depth interview method was conducted. During the period from 2016 to 2019, 13 committees of the COA, certification agencies, experts, scholars and farmers were interviewed, and the data were analyzed through the policy implementation model framework. After analysis of this study, it is found that the various factors mentioned above do have problems affecting the implementation of organic verification. The main issues include: conflicts between the competent authorities' counseling and regulatory positions and performance evaluation standards that do not reflect the reality, the management of the multi-horse carriages of the higher authorities, the vicious competition that may result from the charging of the certification agencies and the flexibility of the process, the employment of the auditors and the quality of the on-site performance. The degree of prosperity and the implementation of organic verification of public influence. In response to these problems, this study proposes to include effective entrustment and performance evaluation criteria for counseling services into more indicators, strengthen linkages between higher authorities, strengthen management mechanisms for auditors, and introduce organic verification into technology applications.