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環境保護與地方政治:北高兩市環保官員對於影響執法因素的認知調查

Environmental Protection and Local Politics: How Local Environmental Bureaucrats Perceive the Factors Influencing Their Regulation Enforcement

摘要


環境管理權若能適當地下地放到地方政府,如地方環保主義者所強調,理論上將可增加政策效率與施政的回應性,也更符合民主精神。因此,歐美國家莫不致力於建立各級政府間環境治理合作關係,並改良制度以兼顧環境保護與民主深化的理想。我國近年環境治理體系的發展,即依循此一理念設計,在地方自治的精神下,將環境法令的執行,主要交由地方政府負責,而縣市政府也握有地方環保人員的主要人事權與管理權。然而,地方政治生態對於官僚運作可能產生的負面影響常被忽略。地方政治由於規模較小,多元性不足,容易受獨佔性利益團體操控,導致體制外的情境因素可能會穿透環境保護的專業行政,形成地方環境保護工作的主要挑戰。這類問題在初步入民主體制、相關配套制度未臻健全的我國尤其明顯。為瞭解此類地方政治對於環境保護的影響,本文除介紹地方環保主義的世界潮流,以及其在民主化情境下的意涵,並以北高兩市為例,以紙筆測驗調查其環保執法人員對於地方情境因素的認知。調查結果顯示,即便在堪稱為全國首善之區的北、高兩直轄市,其環境執法在相當程度上仍必須向許多體制外的政治、經濟與社會因素妥協,而可推斷在其它縣市的情形可能更嚴重。然而,北高兩市的對比,並未如預期明顯。

並列摘要


Local environmentalism has claimed that empowering environmental management to local governments would increase policy efficiency and political responsiveness. Echoing such arguments, Taiwan has developed an environmental governing system that carries similar democratic spirit by allowing local governments to have their own policy orientations and major control over their personnel. Nevertheless, how local political situations may influence the enforcement of street-level bureaucrats, especially in a democratization context, is still not clear. This paper tries to illustrate how local political, social and economic factors have been perceived to influence local regulation enforcement by bureau staffs in Taipei and Kaohsiung Environmental Protection Bureaus. This research indicates that such long suspected factors as illegal lobbying/solicitation for penalty relief did play a role in interfering street-level regulation enforcement.

參考文獻


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