從「生態交通全球盛典」探討我國運輸部門淨零轉型之潛力與挑戰：一個社會技術轉型的觀點

Abstract

氣候變遷已經為世界各地帶來莫大的負面衝擊，聯合國通過《巴黎氣候協定》致力於將地球升溫幅度控制在工業化前平均水準的攝氏1.5度內，為了達到控制升溫幅度之目標，各國政府紛紛提出國家自主貢獻(Nationally Determined Contributions, NDCs)以及淨零排放的轉型計畫。我國政府亦響應國際趨勢於2022年3月30日提出「臺灣2050淨零排放路徑」，其中運輸部門轉型以運具電動化、人本綠運輸以及私人汽機車管理為主要策略，並以加強都市規劃、綠色運輸生活型態為輔助策略。若要達成運輸部門轉型，除了發展低碳技術外，必須從根本降低大眾對於私人運具的需求。換言之，這種改變還涉及到社會面向與生活型態的轉變。

2017年國際組織ICLEI與高雄市共同舉辦的「生態交通全球盛典」是我國極少數針對交通與外出習慣所進行的活動個案。儘管最後活動並沒有成功讓當地居民轉變成使用符合生態交通的移動模式，但仍相當具有研究價值，故本研究採用社會技術轉型的觀點，綜合過去理論的重要論點，重新梳理出一項能夠促進運輸部門淨零轉型的分析框架，從基礎建設與環境、社會溝通以及政府治理三個面向，探討在我國面對運輸部門轉型時，現階段面臨哪些困境、政府單位如何處理相關的阻礙，同時也透過此個案進一步去探討我國發展運輸淨零先行區的潛力與挑戰。

研究發現若要刺激民眾改採用低碳的交通模式，首要必須先改善現階段不連貫的交通基礎建設與移動環境，因為它會帶來制度的行為鎖定效果，加重對於私人運具的依賴程度以及降低對大眾運輸、主動運輸的接受度，鞏固既有的交通政體。第二，淨零與永續知識的建立需要依據不同的族群特性，運用不同的社會溝通途徑才能夠提高達成社會共識的可能。此外，轉型政策的推動也必須符合公正轉型的核心精神，若無及早提供民眾參與決策的管道，將降低民眾對政府的信任感，而使得民眾捍衛原有的制度、抵抗並延遲改變的發生。當政府在面對轉型課題時，須關注不同利害關係人的網絡互動方式，平衡不同立場的聲量，並找到當地社區的關鍵資源分配者進行協商與合作，更能推進轉型的發生。

本研究主要貢獻為建立運輸部門淨零轉型的分析框架，並用於探討我國運輸部門低碳轉型之個案，同時也補足過往理論所遺漏的公民參與和政府治理的角度，強調公民的影響力以及在轉型中政府應特別著重的面向，從中找出作為我國運輸部門淨零轉型的政策意涵。

Climate change has brought significant negative impacts worldwide. In response, the United Nations adopted the Paris Agreement, aiming to limit global warming to within 1.5°C above pre-industrial levels. To achieve this target, governments have proposed Nationally Determined Contributions (NDCs) and Net zero emission transition plans. In alignment with international trends, Taiwan government introduced the "Taiwan 2050 Net Zero Emissions Roadmap" on March 30, 2022. The transition of the transportation sector focuses on electric vehicles, promoting human-orientational green transportation, and managing private vehicles, complemented by enhanced urban planning and green transport lifestyles. Achieving this transition requires not only the development of low-carbon technologies but also reducing public dependence on private vehicles. This kind of transition entails a shift in social aspects and lifestyles.

The "Eco-Mobility World Festival," co-organized by ICLEI and Kaohsiung City in 2017, is one of the few cases in Taiwan focused on transportation and commuting habits. Although the event didn’t ultimately succeed in transforming local residents' mobility patterns to align with eco-friendly transportation, it remains highly valuable for research. Therefore, this study adopts the perspective of socio-technical transitions, integrating key theoretical insights from previous literature to develop an analytical framework that can promote net-zero transition in the transportation sector. The framework examines three dimensions: infrastructure and environment, social communication, and government governance. It explores the current challenges faced by Taiwan in its transportation sector transition, how government agencies address related obstacles, and investigate the potential and challenges of developing net-zero transportation pilot zones in Taiwan through this case study.

First of all, the research finds that a successful transition to a low-carbon transportation model requires improving the currently fragmented transportation infrastructure and mobility environment. This is crucial as it can lead to behavioral lock-in effects, increasing dependence on private vehicles and decreasing acceptance of public and active transportation, thereby reinforcing the existing transportation regime. Second, building net-zero and sustainability knowledge requires different social communication approaches tailored to the characteristics of different groups to increase the likelihood of achieving social consensus. Additionally, promoting transition policies must align with the core spirit of the just transition. Failure to provide early public participation method in decision-making section will diminish public trust, leading to resistance and postpone in change as people will defend the existing system.When addressing transition issues, the government must be aware of the interaction between different stakeholder networks, balance the voices of different standpoints, and engage with key resource allocators in local communities for negotiation and cooperation, which can further facilitate the transition.

The main contribution of this research is developing an analytical framework for the net-zero transition in the transportation sector. The framework is applied to a case study of the low-carbon transition in Taiwan's transportation sector. Additionally, it addresses the previously overlooked perspectives of citizen participation and government governance, emphasizing the influence of citizens on transition policies and highlighting the aspects that the government should particularly focus on. From this, the study identifies policy implications for the net-zero transition of Taiwan's transportation sector.