地方官僚如何協助家戶換燈泡？臺灣縣市政府能源弱勢關懷措施之評估

Abstract

為實現公正的淨零轉型，臺灣逐漸將「不遺落任何人」的理念融入能源政策，其中也包括節電相關舉措。2018年，地方政府的節電政策中有數個縣市提出了「能源弱勢關懷措施」，透過協助弱勢家戶汰換家電，減緩能源貧窮。然而，在臺灣，能源弱勢從未被完善的定義，能源貧窮的實際情形也因較國際為低的電價、不夠完整與公開的家戶用電數據而難以量化。本研究透過基層官僚的視角，討論臺灣的能源弱勢關懷措施如何成型與被執行。透過政策報告盤點和半結構化訪談，我發現地方基層官僚在提出政策選項時，傾向依賴過往經驗、其他縣市先行者做法、以及具有專業知識的委辦公司的提議。因此，能源弱勢的定義往往限縮於經濟弱勢家戶，多數措施也都是汰換家電，並未真正因地制宜、也無法明確指認能源弱勢。因此，我建議加強自上而下的基層官僚能源教育，以補足缺失的專業知識；同時賦予更多自下而上的決策權，使基層官僚更能跨部門合作並嘗試創新解方。更重要的是，將能源貧窮議題納入更高階的議程，而不只是置於節電脈絡，地方政府才能夠更好地整合資源，制定有效的行動計畫。

To achieve net-zero and just transitions, Taiwan has integrated the concept of “leaving no one behind” into energy policies, including energy-saving initiatives. Since 2018, the “energy-vulnerable care measures” have been introduced to tackle energy poverty in several cities and counties. However, low electricity prices and insufficient household data make it difficult to identify and alleviate energy poverty, reflecting ambiguities in policy targets. This study aims to bridge the gap between Western-centric energy poverty discourse and Taiwan’s pro-poor energy initiatives efforts. Through policy documents and semi-structured interviews, I investigate how frontline bureaucrats identify the energy poor, and empower them through home appliance replacement measures. The findings reveal a dual dependence: local bureaucrats seek guidance and resources from the central government and emulate successful local peers. Consequently, the energy poor are often narrowly defined, policy options are limited, and bureaucrats rely on commissioned companies with superior expertise. This approach fails to fully identify the energy poor and address their diverse needs, leading to a one-size-fits-all implementation that is not effective enough. I thus advocate for strengthening top-down bureaucratic energy education while empowering bottom-up decision-making. More importantly, integrating energy poverty into a broader agenda beyond energy conservation, enabling local governments to better coordinate resources, and develop effective action plans.