2015-2017年雲林垃圾大戰：跨域治理途徑之分析

Abstract

民國104年我國屢次發生中部縣市垃圾無處燒的窘境，其中以雲林縣垃圾累積的公噸量最為驚人，然而，在「鄰避情結」的催化之下，雲林縣垃圾無處傾倒，可以說是臺灣「第二次垃圾大戰」。與其同時，台北市三座及高雄市兩座公有公營廠運轉率卻低於80%，透露出「垃圾不夠燒」之現象，換言之，「跨域治理」很有可能是垃圾危機處理的最佳解套方式，於是引發本文的研究動機。希冀透過質化調查方法，企圖去了解是怎樣的態度和交錯互動，使得這些行動者最終成為鄰避情結人，並且更進一步理解導致跨域合作破局的關鍵。 研究結果發現，首先，造成雲林垃圾無處燒之根本原因乃是市場之供需失衡與諸多外部因素而導致的，尤其「鄰避效應」是本次雲林縣垃圾大戰失敗的關鍵所在。其次，中央政府在垃圾跨域合作上有著不可或缺的角色。尤其目前台灣縣市的合作經驗不足，需要中央主管介入，扮演公正的協調者與監督者。最後，本研究為政府垃圾處理提供幾點建議，包含：在全台推動垃圾減量政策、授予中央實權、在垃圾調度上建立誘因機制建立、產生合作之誘因以及更有效管控事業廢棄物。

Several “trash crises” occurred in 2015 in counties and cities in the central Taiwan. Yunlin County, in particular, has been overloaded with tons of trash. It was observed that the amount of trash waiting to be proceeded was the highest among the problematic areas. The overloading of trash was exacerbated under the “not in my back yard (NIMBY)” phenomenon, causing “the second trash crisis” in Yunlin County. At the same time, there were five – three in Taipei City and two in Kaohsiung City – public incinerators found to be underused, indicating that “across boundary governance” was the possible solution to the crisis. Through the qualitative research method, the inclination of related actors, the interaction among them, and the cause of actors who fell into the trap of NIMBY are examined in this paper. Furthermore, this paper aims at identifying and analyzing the key factor of the failed practices of the across boundary governance in this case. There are two findings in the research: first, the Yunlin trash crisis was fundamentally caused by market disequilibrium and other external factors. NIMBY phenomenon particularly played a critical role bringing out the crisis. Moreover, as impartial coordinator and supervisor, the central government was an indispensable actor leading the across boundary cooperation of trash allocation among local governments, which lacked of experiences of coordinating with the counterparts at the same level. Finally, several suggestions of trash management for the government are brought up by the research, including: promotion of garbage reduction at the scale of the whole country, a central government granted with real power on the matter, setting up incentives for trash allocation and cooperation, and more effective management on the business waste.