臺北市校園光電之協力治理：戰略、效應與反思

Abstract

近年政府大力推動和倡議再生能源發展，在既定的太陽光電建置容量目標之下，地方開始運用主責單位明確的公有房地，試圖大規模建置屋頂光電系統，以提升裝置量為當前首要目標。本研究以公私協力治理理論檢視臺北市公立學校光電建置政策之地方政府戰略轉變，及產生之空間與社會效應，探討臺北市政府和光電系統商基於各自的發展策略，如何共同推進臺北市校園光電建置成效，並提出反思。透過理論模型之初始條件與協力過程等概念分析，論文揭示了臺北市政府與以大同公司為代表之企業現今相互依賴的公私合盟型態，並進一步指出如今的建置型態所造成的影響。研究透過半結構式訪談、政策檔案蒐集，探究治理模式轉變與執行過程，並以針對學校教師的訪談、校園空間觀察紀錄等方式說明政策影響。 研究發現臺北市政府透過市有房地出租與聯合招標的制度設計，建構了有利於大型系統商之獲利機制，再加上企業與市政府既有的良好關係和建置過程中的相互合作、互賴等協力的形成條件，鞏固了公私夥伴關係，從而排除了公民和小系統商的參與，亦弱化了管理單位學校於協力治理之中的角色。研究並發現公私協力治理下的校園光電建置儘管活用了閒置的屋頂空間，並快速提升校園光電建置量；但在政策宣稱的能源教育意義方面，因其委由系統商營運的性質，校內空間使用與課程設計和建置於校園中的太陽光電設施並沒有因此互動交集。此外雖然2019年起政策增加了公民電廠作為公民參與的管道，但因市政府建置績效的考量與制度設計，使得公民參與的型態仍侷限於參與募資。研究建議後續政策應善用校園光電座落於社區的可近性與鄰里關係，成為環境教育場域，以打開能源公民培力的可能性。

The government has actively promoted and advocated for renewable energy development in recent years. Under established targets for photovoltaic installation capacity, local governments have begun utilizing accountable publicly owned properties, aiming to deploy rooftop solar photovoltaic systems as their primary objective massively. This study examines the strategic shifts in solar photovoltaic installation policies of Taipei City's public schools through the lens of collaborative governance theory, exploring the spatial and social effects generated thereby. This study investigates how the Taipei City government and solar system providers, based on their respective development strategies, jointly advance the effectiveness of solar photovoltaic installations on school campuses. Based on research findings, this study reflects on the policies, offering several suggestions. Through the concepts of starting conditions and collaborative processes proposed by a collaborative governance model the thesis reveals a public-private alliance typified by mutual interdependence between the Taipei City government and enterprises represented by the Tatung Corporation. Thus, the thesis highlights the effects stemming from current deployment modalities. The research employs semi-structured interviews, policy document analysis, and observations of schools to identify the governance model transitions and implementation processes. Interviews with school teachers and records of campus spatial observations illustrates the policy effects. The study finds that the Taipei City government has structured a profit mechanism favorable to large system providers through institutional designs such as leasing city-owned properties and joint bidding. The public-private partnerships were reinforced by existing relations between enterprises and the city government, along with conditions fostering cooperation and interdependence during deployment. This consolidation of public-private partnerships excludes participation from citizens and small system providers and diminishes school management units' role in collaborative governance. Despite effectively utilizing unused rooftop spaces and rapidly increasing solar photovoltaic installations on campuses, the study notes that outsourcing to solar system providers leads to a lack of synergy between energy education goals and the solar photovoltaic facilities on campuses, as proclaimed in policies. Policies have introduced community solar programs to foster citizen participation in energy transition since 2019. However, the pursuit of installation performance and institution designs has resulted in fundraising appearing to be the primary form of public engagement. The study thus recommends that policies utilize the accessibility of campus solar photovoltaics to communities and neighborhood relationships, transforming them into environmental education sites to unlock the potential for energy citizen empowerment.