日本食品輸入臺灣之立法偏好、監管作為與市場回應：一個政策共構的觀點

Abstract

本論文以「政策共構」（policy co-production）理論為核心框架，剖析我國長達11年的日本食品進口管制爭議。福島五縣食品禁令所構築出此一非關稅貿易壁壘（NTBs），並非單純源自於政府頂層的設計，而是一個由立法菁英、技術官僚、市場行動者與社會民意等多方力量，在特定時空背景下動態互動、共同形塑的政治產物。 本論文發現，歷年來立法者在此議題的立法偏好呈現動態轉變，深受民意輿論、國內食安事件與政黨輪替等多重因素牽引。在不同階段中，朝野立委皆運用「附帶決議」此一非正式但極具政治實效的工具，將民眾對於日本食品的疑慮所形成的社會共識與感知，轉化為實質的管制措施，展現了菁英行動者如何主導政策框架。然而，本論文最重要的發現，在於揭示了進口商所扮演的一個看似被動、實則關鍵的角色：他們雖在初期決策中被排除，其後續「高度自律避險」的市場策略，卻反過來「再共構」了政策的最終效果，使得政策的「開放」未能轉化為市場上的「流通」，從而形成一種由下而上、更為隱蔽的貿易障礙。 本論文藉由揭示此一上下互動的共構樣貌，為理解進口食品安全等此類原本屬於單純技術性上的爭議，提供了一個不同於傳統政策分析或食品安全領域之多維度政治視角。本論文結論指出，任何旨在解決未來此類具有高度爭議性的政策，都必須正視並納入所有關鍵行動者的反應與動機，方能尋得真正的解方。

This thesis adopts the theoretical framework of policy co-production to examine Taiwan’s prolonged 11-year controversy over the import restrictions on Japanese food products. It argues that the non-tariff barriers (NTBs) constructed around the ban on food from the five Fukushima-associated prefectures were not solely the result of top-down government design. Rather, they emerged from dynamic interactions among legislative elites, technocratic regulators, market actors, and public opinion, shaped within specific historical and political contexts. The study finds that legislators’ policy preferences on this issue shifted over time, heavily influenced by public sentiment, recurring domestic food safety incidents, and partisan alternation in power. Throughout various phases, both ruling and opposition lawmakers strategically utilized the politically potent, though informal, tool of supplementary resolutions to translate societal concerns about Japanese food into tangible regulatory measures—demonstrating how policy framing was led by elite actors. More importantly, the thesis highlights the critical yet overlooked role of importers. Although largely excluded from the early stages of policymaking, their subsequent adoption of highly self-regulated, risk-averse strategies effectively re-shaped the policy’s final outcome. As a result, governmental liberalization did not translate into actual market circulation, creating a bottom-up and more covert form of trade barrier. By revealing this interactive process of co-production, the thesis offers a multidimensional political perspective that moves beyond conventional policy analysis or purely technical discussions of food safety. It concludes that resolving highly contested regulatory issues in the future will require acknowledging and incorporating the motivations and responses of all key actors involved.