我國限塑政策的制定過程之研析：永續發展與治理之觀點

A Study on Taiwan’s Policy-making Process of the Restricted Use of Plastic Materials: the Perspective from Sustainable Development and Governance

李明輝(Ming -Huei Lee)

指導教授 ： 蔡勳雄

國立臺灣大學/社會科學院/政治學研究所/碩士(2008年)

https://doi.org/10.6342/NTU.2008.10696

摘要

本研究主要是對我國限塑政策的制定過程進行研析。試圖從永續發展與治理之觀點，解釋並評判我國限塑政策的制定過程。
本研究主要的目的是：
一、分析限塑政策的成立背景與理念。
二、分析限塑政策規劃、合法化及執行之優缺點。
三、歸納研究心得，提出結論及建議，希望能改進限塑之缺點及「政策窘境」，以提供日後政府機構訂定及執行公共政策參考，藉以提高政策之成功率。
四、本研究結果可供後續研究限塑政策相關議題之參考用。
本研究採用「文獻探討法」 (Literature Review Method)，蒐集之資料為：政府資料(委託研究、會議紀錄、業務文件、法令規章等)、工具書、期刊文章、學位論文及其他（新聞報導、網路資料等）與「個案研究法」(Case Study)，針對限塑政策作深入探究。
本論文之研究成果如下：
一、限塑政策在第一階段:政府部門、國軍福利品供應站、公私立學校與公私立醫療院所，及第二階段:百貨公司、量販店、超級市場、連鎖便利商、連鎖速食店，以及「塑膠類免洗餐具」等在減量成效方面是有成效的；但在有店面餐飲業之「付費取得」及「厚度之管制」方面成效有限。
二、從「永續發展」觀點研析限塑政策：本文從「經濟成長」、「社會公平」與「生態均衡」三大層面進行研析。
（一）從「經濟成長」層面研析，分別從效率、穩定、永續成長與分配適當性三大主軸來探討。在「效率」方面：不符合「經濟效率」原則；在「穩定」方面：限塑政策實施以後，造成經濟不穩定現象。從「永續成長及分配適當性」方面分析：限塑政策未必是社會成本最低的選擇。
（二）從「社會公平」層面研析，分別從貧窮、民眾参與及文化遺產來討論。從「貧窮」方面分析：限塑政策造成勞工失業，可能使勞工陷入貧窮的危機中；從「民眾参與」方面分析：比較缺少民眾參與政策規劃及合法化等之過程；從「文化遺產」方面討論：主要是以環保做為綠色行銷的手段，可是實在不夠方便性，不容易順手做環保，尤其在有店面之餐飲業方面。
（三）從「生態均衡」層面研析，分別從污染預防及自然資產保育、全球問題、物種多樣化、系統回復力與穩定性方面來討論。在「污染預防」方面：則是一種不環保又浪費的政策；從「自然資產保育、全球問題、物種多樣化、系統回復力與穩定性」方面分析：似乎有不良之影響。
三、從治理觀點研析限塑政策：茲以善治中之「合法性」、「透明性」、「責任性」、「法治」、「回應性」及「有效性」等6項基本要素（特徵）來研析限塑政策。
（一）以「合法性」來看限塑政策：在政策上的「正當性」、「適切的」、「合法性」等方面，則具有相當的爭議。
（二）從「透明性」（Transparency）研析限塑政策：政策制定過程不夠透明性。
（三）從「責任性」（Accountability）研析限塑政策：環保署、地方環保局及相關部會可謂非常具有責任性。稽查人員也算是相當有責任性的。第二階段前5大行業方面是一種負責的表現。至於第6類有店面餐飲業者是不夠責任性，唯就法的實效性而言，他們也可算是具有責任性。塑膠類免洗餐具業也深具責任性。社會大眾在前5大行業方面具有責任性。而在有店面餐飲業方面，則已經在儘可能範圍內具有責任性。
（四）從「法治」（Rule of Law）研析限塑政策：限塑政策似乎不太吻合法治。
（五）從「回應性」（Responsiveness）研析限塑政策：罰鍰調降方面算是相當具有回應性。在有店面餐飲業方面，回應性並不良好。把攤販列為塑膠類免洗餐具的限用對象，算是一個良好的回應性。在購物用紙袋、紙類免洗餐具納入管制方面，回應性相當務實。但在取消厚度的管制方面，回應性不佳。
（六）從「有效性」（Effectiveness）研析限塑政策：顯得低效率或無效率。
四、高民調支持之政策不必然代表政策能夠推動順利。
本論文對限塑政策建議如下：
一、可取消厚度之管制，但其販賣塑膠袋所得之利潤，環保署可以與限用對象協商成立基金，或與財政部合作，成立一個由政府監管之共同基金，其費率由社會公正人士，環保團體、專家學者、政府代表、相關業者、消費者代表等組成費率審查委員會，每年檢討調整。另環保署可以鼓勵民間業者成為志工企業家從事社會企業。
二、在購物用塑膠袋材質，可參考日本之做法，並加以研究是否適合引進台灣。
三、環保理念的落實，必須要有成熟客觀環境的配合，以及民眾心悅誠服地遵守。所以環保應與社會、經濟等力量，互相結合，才是可長可久的發展理念。
四、治理在短時間內可能比較不符合效率，但長期來看卻符合效率及效能，所以環保署應善用民間的力量，如非政府組織等的參與，通過合作、協商、夥伴關係，達成共識、確立共同的目標等方式，以社區為單位，進行「社區治理」。
五、環保署計畫將公告塑膠袋為「一般廢棄應回收項目」強制回收乙案，應該要謹慎從事，在沒有詳細評估利弊得失及相關配套措施前不要貿然實施，否則可能會步入寶特瓶的殷鑑。
六、探討環境教育的成效:由於限塑政策已實施五年餘，所投入之人力與物力是空前的，除了檢討政策成敗與改進方式外，民眾的知識、態度與行為是否因實施限塑政策而有所成長，因此探討限塑政策在環境教育上所發揮的功能，值得進行，以做為下一個重大政策之參考。
七、政策制定，應謀定後動，善加規劃，而非急功近利，才能建立長治久安的制度，再輔以高效率執行力，兩者相輔相乘，方能有亮麗的績效。
八、政府制定法律要適當妥適、合於情理法的要求，並要考慮公共利益及民眾利益之均衡，避免團體迷思，才能適切有效，發揮法律的正面功能。另制定法律或政策來改變社會習慣，應遵守法不責眾原則及針對人民需要立法施政。為了維護法律或政策的公信力，對不切實際的法律或政策，就應修改或廢止。

關鍵字

限塑政策 ； 塑膠袋 ； 永續發展 ； 治理 ； 善治

並列摘要

The focus of this study is on the government’s policy-making process for the restricted use of plastic materials (PLP, the Plastic-limiting Policy). This study attempts to explain and judge, with views of sustainable development and governance, on the PLP by the local authorities.
The objectives of this study include:
1. To analyze the background and rationale behind the PLP.
2. To analyze the pros and cons of the planning, legalization and enforcement of the PLP.
3. To induce the summary of study, to conclude and propose, with a view on improvement in "policy dilemma" of the PLP, for the future public policy-making reference, which might contribute to some higher chances of success.
4. The conclusions made in this study can be of referential value to any onward study related to the PLP.
This study adopts the Literature Review Method with collected information of government information (commissioned research, the meeting records, business documents, decrees and regulations, etc.), tools, periodicals, journal articles, academic papers and others (press reports, Internet information, etc.) Another methodology is by "Case Study." Both methods are referred to in the study on the PLP.
This study has made the following conclusions:
I. The PLP had a positive outcome related to government agencies, supply of military goods, public and private schools and hospitals, the department stores, discount shops, supermarkets, chain convenience stores, fast food chain restaurants and disposable plastic tableware. However, it was less effective when applied to “obtaining by payment” and “thickness control” in the retailed catering industry.
II. To View the PLP from the viewpoint of sustainable development, this study take into account the three pillars of economic growth, social fairness and ecological balance.
1.With analytical "economic growth" views, the efficiency, stability, sustainable
growth and the appropriate allocation legitimacy, are studied. Conclusions are made as follows: the "efficiency": not in line with "economic efficiency" principle; the "stability": the PLP implementation has caused certain economic instability; on the "sustainable growth and the appropriate allocation legitimacy”, PLP is not necessarily an option of the lowest cost.
2. From the view of "social fairness": Analysis was made of poverty, public
participation and cultural heritage. From the view of "poverty," the PLP raised
unemployment in laborers and crisis of poverty. From the "public participation"
analysis, comparatively the PLP lacked popular participation in the policy-planning
and legitimacy. From "cultural heritage" point of view, environmental protection
taken as PLP’s major means of green marketing, is not giving convenience to the
public, especially in the retailing catering industries.
3. Viewed from the analytical study on the "ecological balance", discussions made by views of pollution prevention, conservation of natural assets, global issues, species diversification, systematic recovering capability and stability. Viewed from "Pollution prevention", the PLP is not environment-friendly, nor economical. Viewed from the "conservation of natural assets, global issues, species diversification, systematic recovering capability and stability, the PLP seemed to have brought out more negative impacts.
III. From the management perspective to study PLP: herewith the criteria of a good governance in terms of "legitimacy", "policy-transparency", "accountability", "rule-of-law", “responsiveness" and "policy-effectiveness ", collectively as the features of a good governance, are studied along with the PLP.
1. To view by legality of PLP, in terms of "legitimacy", "relevance" and "legality", there is considerable controversy.
2. "Transparency”: the policy-making process lacked transparency.
3. "Accountability " : The EPA (Environmental Protection Administration Executive
Yuan R.O.C.), local EPB (Environmental Protection Bureau) and the relevant central government departments had high accountability. Inspectors also had considerable responsibility. Top five industries are of a responsible performance. Yet, the #6 category for retail catering industry lacked accountability. However, according to their legal standing, they could also be regarded as of high accountability. Disposable plastic tableware industry also had great accountability. The previous five industries have the accountability of the industry. In a retail catering industry, it has been possible within the scope of accountability.
4. From the point of view of "rule of law": the PLP seemed not to have met with the requirements of the rule of law.
5. From the point of view of "responsiveness": The reduction of fines was quite responsive. The retail catering industry did not have a good response. Targeting street vendors as the disposable plastic tableware restriction object can be regarded as having good responsiveness. In the shopping bag use, disposable paper tableware under control, is a pragmatic response. However, the abolition of the thickness control had poor response.
6. From the viewpoint of "effectiveness ": the PLP had low effectiveness to no effectiveness.
IV. High profile in the public opinion poll does not necessarily represent the policy was promoted smoothly.
This paper has the following recommendations to the PLP:
1. Cancel thickness control, but for the profits from commercial plastic bags, the EPA
should set a target of use by consultations, or, set up a fund or cooperation with the
Ministry of Finance, or set up a government regulation of mutual funds. The sales of
plastic shall be within the rates based on social justice, and by environmental groups, experts, academics, government representatives, the relevant industry, consumer representatives, and others, to form a Rates Review Committee that make an annual review of adjustment. Another EPA challenge is to encourage private industry to become entrepreneur-volunteers, to engage in volunteer social enterprises.
2. For Plastic material used in shopping, the practice may refer to Japan, and to examine the suitability of introducing it to Taiwan.
3. The implementation of the concept of environmental protection needs maturity of an
objective environment, as well as to convince people so they will willingly comply
with the policy. Therefore, environmental protection should be socially and
economically strong and combined, then this combination is a long lasting sound
ideas of development.
4. Governance in a short period of time may be inconsistent with efficiency, but a
long-term perspective is consistent with efficiency and effectiveness. The EPA
should make the best use of the power of civil society, such as the non-governmental
organizations, for their participation. Through cooperation, consultation,
partnerships and reach consensus establishment of common goals, The EPA can
reach the goal of "Community Governance" via “community-units”.
5. The EPA should proceed with care as it plans to publicize that plastic bags are a
"general discarded item” and should be recycled" for mandatory recycling plan. In
the absence of a detailed assessment of advantages and disadvantages of the former
and related measures, this plan should not be hastily implemented, otherwise it will
be another failure case like that of the PET bottles.
6. In terms of the results in environmental education, the PLP has been carried out for more than five years. The manpower and money, which has been put in, are unprecedented. Besides examining the effects and improvement in the PLP, the public’s knowledge, attitude and behavior growing along with the PLP should be evaluated. Therefore, it is worth to view the function of the PLP on environmental education as a reference for the next vital policy.
7. Policy makers should take time to make good planning, and never seek quick
success. The stability of the system can be established, supplemented by the
implementation with high-efficiency, then the success by both two elements will
prevail.
8. The government introducing proper legislation, appropriately and properly, to
optimize the public’s interest along with the interests of the private persons’ interest.
Law-making or policy–making that might change the social customs, should always
follow the basic rule of “no-punishment-to-the-public”, and act only to meet
people’s needs. In order to maintain the credibility of law or policy, the unrealistic
laws or policies should be amended or abolished.

並列關鍵字

plastic-limiting policy ； plastic bag ； sustainable development ； governance ； good governance

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