為何環境議題不是個事？台灣兒少代表制度之提案困境探索性研究

Why Environmental Issue is not an Issue? An Exploratory Study of the Challenges to Proposals in the Child and Youth Representative System in Taiwan.

吳柏萱(Po-Hsuan Wu)

指導教授 ： 張弘潔

國立臺灣大學/公共衛生學院/健康政策與管理研究所/碩士(2021年)

https://doi.org/10.6342/NTU202104387

摘要

環境汙染持續是影響兒童健康之重要因素，兒童由於生理條件及暴露時間等因素，在環境的污染下是最易感的受害者。過去研究顯示，兒童免疫系統及肺部未完整發育，受到空氣污染影響的機率較成人高。
台灣在2014年制定《兒童權利公約施行法》，透過此法台灣政府實施《兒童權利公約》。其中，關於兒童表意權，政府受課責設置兒童參與在政策決策過程之管道。本研究以學者Laura Lundy所提出之「兒童及少年參與模型」，探討兒少代表參與政策決策過程之現況，並分析兒少代表進行提案之現況與困境，特別是環境提案。
本研究使用質性研究方法：本研究訪談來自9個縣市之11位兒少代表關於台灣兒少代表制度之參與過程。並以檔案分析法，分析受訪者所屬縣市之「兒童及少年福利促進委員會」（以下通稱「兒促會」）之會議紀錄，分析兒少代表提案狀況並進行縣市比較。
研究結果顯示：我國政府雖然為保障《兒童權利公約》第12條之表意參與權，設有兒少代表制度，然而該制度對於兒少代表進行提案仍有諸多阻礙，包含：(1)以成人為中心的制度設計，在議程設計、會議速度、兒少角色、培力訓練存在落差，造成兒少參與的阻礙；(2)要求兒少代表進行提案研究，卻未給予對應之行政協助；(3)提案格式非兒少友善，且要求對提案提出解決方法，對提案設下高門檻；(4)在用語上，要求以公文用語進行提案。
針對環境議題，僅有台中市兒少代表針對空污提過兩案。環境議題難以提案之原因歸納如下：(1)議題框架設定受到限縮，環境議題往往被視為非兒少議題；(2) 多數縣市未將環保機關列為出席機關；(3) 環境污染資料取得及解讀門檻高，且少代難以提出解決方法，因而成為提案障礙。
根據研究結果，本研究提出三項主要的政策建議：(1)建立以兒少為中心的會議及制度：將兒少納入會議議程和制度的制定者，並且仿效愛爾蘭政府，採納參與模型作為指引；(2)建立兒少友善的表達意見方式：不限制表意方式，並且提升相關行政人員具備兒童權利意識，使其具備聆聽兒少意見的能力；(3)建立透明公開的參與制度：以逐字稿、影像紀錄做成會議記錄並以公正第三方進行監督。

關鍵字

兒童權利公約 ； 表意權 ； 參與 ； 環境 ； 兒少代表

並列摘要

Environmental pollution is an important factor affecting children's health. Children are the most vulnerable victims of environmental pollution because of their physiological conditions and exposure time. Past studies have shown that children with underdeveloped immune systems and lungs are more likely to be affected by air pollution than adults.
Taiwan enacted the Implementation Act of the Convention on the Rights of the Child in 2014, through which the Taiwanese government implements the Convention on the Rights of the Child (UNCRC). The government has the responsibility to set up channels for children to participate in the policy-making process regarding children's right to express their views. This study uses the "Child and Youth Participation Model" proposed by Laura Lundy to discuss child and youth representatives participating in the policy-making process and to analyze the current situation and dilemmas of children's representatives' proposals, especially environmental proposals.
This study used a qualitative research method: conducted semi-structured interviews with 11 children and youth representatives from 9 cities about the participation of Taiwan's children and youth representative system. And conducted document analysis of the meeting minutes of the Committee for the Promotion of Child and Youth Welfare to analyze the status of children and youth representatives' proposals.
The results of the study revealed that although Taiwan has a children's representative system, there are still many obstacles to the proposal process of children's representatives in the system, including: (1) the adult-centered design in agenda, children's roles, and training, resulting in obstacles to children's participation; (2) children's proposal research are required but government does not provide them with corresponding administrative assistance; (3)The way to propose are not children friendly and children need to propose a solution which set high thresholds for proposals. (4) require proposals to be made in the official language of the proposal form.
For environmental issues, only the Taichung City Children and Youth Representative has proposed proposals. The reasons for the difficulty in proposing environmental issues are summarized as follows: (1) the issue framework is limited, and environmental issues are often considered “non-children's issues”; (2) Department of Environmental Protection are not listed as attending agencies in most counties and cities; (3) the threshold for obtaining and interpreting environmental pollution data is high, and it is difficult for children and youth representatives to propose solutions, thus becoming an obstacle to proposing.
Based on the results of this study, three main policy recommendations are proposed: (1) establish child-centered meetings and systems: include children as agenda and system makers. And adopt participation models as a guide, following the example of the Irish government; (2) establish child-friendly ways of expressing opinions: do not restrict the ways of expressing opinions, and make all authorities listeners of children's opinions; (3) establish a transparent and open participation system: using verbatim transcripts, video records of meetings, and monitoring by an impartial third party.

並列關鍵字

Convention on the Rights of the Child ； The Right of the child to be heard ； Participation ； Environment ； Children's Representative

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