陸客來台觀光自由行政策評估－以旅行業者調查為例

Evaluating Taiwan’s Policy of Opening Tourism to Individual Mainland Chinese Tourists: A Sruvey of Travel Agencies

關麗卿(Li-Ching Kuan)

指導教授 ： 陳明通

國立臺灣大學/社會科學院/國家發展研究所/碩士(2013年)

https://doi.org/10.6342/NTU.2013.10323

摘要

台海兩岸因歷史情結長久以來無法進行交流，直到1987年中華民國政府開放民眾赴大陸探親開始，兩岸的關係有了連結；為了因應新情勢及活絡國內旅遊市場，立法院在2000年，修正通過「台灣地區與大陸地區人民關係條例」，開啟海峽兩岸觀光；2008年，兩岸簽署「海峽兩岸關於大陸居民赴台灣旅遊協議」，開放大陸人民來台觀光；但是三年多來，大陸團體來台人數雖有增加，但一般民眾對經濟好轉卻無感，而且零團費的競爭與賣店強迫的惡性循環問題叢生，因此政府為有助提升觀光產業發展及深入各個產業階層經濟效益，遂於2011年6月啟動大陸居民赴台自由行旅遊，實施以來迄2013年5月底，觀光局表示，目前總計已達387,300多人次；兩岸航班每週增至616班次和61個航點；而陸客自由行人數配額調高到兩千人；觀光局也透過駐北京、上海辦事處，進行旅遊宣傳、同時輔導業者做好準備；自由行旅客在兩岸的規劃下將會穩定成長。
可是在亮麗的數據及政府當局與中國大陸從解凍情勢至急進交流到全面做多的狀況下，我們應該用什麼樣的心態和思考模式去應對？開放陸客來台觀光「自由行」初期效果不符當初預期；特別是全台旅行社合計3197家，但是合於接待陸客的旅行社僅496家，這其中又約80％旅行社沒有接待自由行的陸客，為什麼會有此現象？是政策制度面的錯誤？是法規條文的限制？是經濟因素的考量？還是政府與民間對問題的看法有不同落差？個人是從事旅行業的工作人員，希望藉由旅行業者角度切入，以問卷數據及深度訪談資料，並進一步達成下列三項研究目的：
（一）「陸客來台觀光自由行政策」的形成與決策層面：
分析現階段來台觀光陸客自由行政策的形成背景，情境，其中包括如何在面對國、内外等環境因素，所進行的政策的調整與轉變。藉以探討全面擴大開放陸客自由行之效應。
（二）政策評估「陸客來台觀光自由行政策」的内涵層面：
運用政策評估探討「陸客來台觀光自由行政策」，對我國可能產生之利弊得失分析。
（三）研析「陸客來台觀光自由行政策」與建議層面：
透過旅行業者、導遊、從業人員之問卷及訪談調查，瞭解「開放大陸人士來台觀光自由行政策」所衍生之問題，提出評估結果與檢討建議，以利政府施政參考及後續相關研究。
研究結果顯示，旅行業者建議事項：
(一) 政府應實施配套措施
(二) 產官學界應有多元溝通管道 ; 並適度修改法令，對旅行業輔導與管理並重
(三) 兩岸政府擴大宣傳、大陸方面應加速開放與加速審核流程
(四) 兩岸政府對惡質業者應重罰重懲

關鍵字

陸客來台觀光 ； 自由行 ； 兩岸關係 ； 觀光政策 ； 旅行業者

並列摘要

Taiwan and China had been separated for half a century. The R.O.C. government unlocks the tense situation by allowing Taiwanese people to visit their relatives in Mainland China since 1987. Since the cross strait tourism began in 2000 after the Legislative Yuan passed the Cross-Strait Agreement Concerning Mainland Tourists Traveling to Taiwan in order to stimulate domestic tourism market, the mainlanders travelling to Taiwan have largely increased in number. However, the general public has no feelings about the economic upturn. In addition, the zero-fare competition and forced-shopping in some particular shops have caused huge problems to travel agencies.
In order to promote and develop tourism as well as boost economy in various industry sectors, the government decided to open the door for mainland individual tourists traveling to Taiwan. According to the Tourism Bureau, the total amount of mainland tourists traveling to Taiwan reached to 387,300 at the end of May 2013. Moreover, not only the number of cross-strait flights has increased to 616, and the destinations, 61 cities per week, but also the quota for mainland individual tourists traveling to Taiwan has adjusted to 2,000 people. The Tourism Bureau put lots of endeavors to attract mainland tourists through its offices in Beijing and Shanghai, and help travel agencies to get ready for the booming industry. Government officials optimistically predict that the mainland individual tourists will surge up.
However, the results of mainland individual tourists traveling to Taiwan do not meet the expectation at the inauguration of this policy. Government data show that there are only 496 out of 3,197 agencies in Taiwan are capable of receiving mainland tourists and only two tenths of the 496 agencies are receiving mainland individual tourists, contrary to government officials’ high expectations. Why is that? Is it due to the mistakes of the policy or the restraints of the regulations? Is it because of the economic consideration or the different point of view between government and general public? To answer these questions, this study tries to utilize the statistical methodology and depth interviews to dig deeper into the phenomenon to fulfill the following research purposes:
1. To explore the formation and decision-making aspect of the policy of mainland individual tourists traveling to Taiwan, this study analyze the policy background at the present stage, including how to revise the policy to adjust the domestic and international environment, and to probe the effects of wide open to the mainland individual tourists traveling to Taiwan.
2. To evaluate the inner part of the policy, this study utilizes the policy evaluation approach to analyze whether the policy has brought the advantages or disadvantages to Taiwan.
3. To provide suggestions on the policy of mainland individual tourists traveling to Taiwan, this study utilize questionnaire and depth interviews on agencies, tour guides, and practitioners to understand the questions behind the policy, and provide the evaluation outcomes and suggestions for the future research as well as for the government for a better regulation-making.
This study’s suggestions are as follows:
1. The government should implement supporting measures.
2. Multiple Communication Channels between government, academic, and the industry. Revise the regulations and policies properly as well as consult and manage the agencies simultaneously.
3. Enlarge the propaganda from both sides, and the mainland government should speed up the viewing process.
4. The governments from both sides should put severe penalties and punishments on the bad agencies.

並列關鍵字

mainland tourists traveling to Taiwan ； individual tourist ； cross-strait relations ； tourism policy ； travel industry ； travel agency

參考文獻

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