轉作雜糧為農糧系統永續轉型路徑：臺灣大豆、甘藷與蕎麥的案例研究

Abstract

雜糧為臺灣人日常主食之一，然而自1960年代即高度仰賴進口，國內生產量極低。近年來，隨著全球對永續農糧與氣候變遷議題的關注提升，以及國內水稻生產結構需調整，輪作雜糧因具氣候變遷調適、友善耕作及促進生物多樣性的潛力，逐漸被視為臺灣農糧系統回應變遷、邁向永續的重要途徑。因此，約自2010年起，政府農業部門陸續推動相關政策，試圖透過政策工具重構國產雜糧產銷鏈，進而提升國產雜糧的產量與品質。同時，在消費面，隨著民眾收入高與對健康與永續議題的重視增加，消費行為亦逐步轉向支持友善耕作與輪作雜糧。整體而言，使農糧體系逐步由以慣行稻作為主的模式，轉向更具永續性的生產與消費結構。 本研究即討論轉作雜糧作為臺灣農糧系統轉型之可能路徑，聚焦以下三個研究問題：(1)近年來，臺灣農糧與國產雜糧產業之生產與消費模式發生哪些轉變？(2)促使國產雜糧產業鏈發展之因素為何？這些因素如何在產業轉型中發揮作用？(3)在臺灣農糧轉型與國產雜糧發展過程中，有哪些行動者參與其中？作為影響轉型的因素之一，行動者如何對產業轉型產生影響？本研究以大豆、甘藷與蕎麥三種作物為主要討論對象，採用多層次視角（multi-level perspective, MLP）作為永續轉型的分析框架，並運用質性研究方法，結合二手資料與深度訪談，探討在進口壓力下，臺灣農糧生產消費系統如何藉由發展雜糧輪作體系、實踐友善環境生產並建立另類消費網絡，朝向永續轉型，並進一步分析轉型中行動者的角色與作用。 研究發現，生產面技術發展與規模化經營，有助於強化下游連結並擴展通路，同時實踐永續農業；在消費面，通路擴展與具永續理念的消費者參與，進一步帶動需求成長。政策補貼亦強化生產者意願與消費者參與度。然而，受限於國產雜糧價格相對較高與在地消費意識未普及，國產雜糧主要仍停留於利基市場，形成小型通路為主的另類糧食網絡。本研究亦指出，儘管政府政策為帶動產業發展的關鍵動力，生產與消費端行動者積極串聯資源、拓展市場並實踐永續，亦對產業轉型發揮關鍵作用。本研究補足永續轉型文獻中對農業產銷鏈與消費面的理解，進一步指出行動者在轉型中的關鍵角色，亦可作為國內農業或其他產業未來邁向永續轉型之參考依據。

Miscellaneous Crops are among the staple foods in Taiwan, yet since the 1960s, domestic production has remained minimal, heavily dependent on imports. In response to rising global concerns over sustainability and climate change, along with the need to adjust Taiwan’s rice-centered production model, rotational cultivation of miscellaneous crops has gained renewed attention. These crops are valued for their potential in climate adaptation, eco-friendly farming, and biodiversity enhancement, and are increasingly seen as a pathway for transforming Taiwan’s agri-food system toward sustainability. Since 2010, government policies have sought to rebuild the domestic crop supply chain and improve both production and quality. Meanwhile, rising consumer awareness of health and sustainability has led to growing support for environmentally friendly and locally produced crops, signaling a broader shift in production and consumption patterns. This study explores the potential of rotational crop cultivation as a pathway for agri-food transition in Taiwan, focusing on three crops—soybeans, sweet potatoes, and buckwheat. Using the Multi-Level Perspective (MLP) framework and qualitative methods including secondary data and interviews, the study examines recent changes in production and consumption, key drivers of supply chain development, and the role of actors in shaping transitions. Findings show that technological development and scaling in production help expand market access and promote sustainable practices. On the consumption side, expanded distribution and the engagement of sustainability-minded consumers drive demand, supported by government subsidies. However, challenges such as high prices and limited public awareness confine domestic Miscellaneous crops to niche markets. While government policy is a key driver, this study highlights the critical role of producers, consumers, and other actors in mobilizing resources and building alternative food networks. It contributes to sustainability transition literature by emphasizing the importance of actor dynamics within agricultural transformation and offers insights for similar transitions in other sectors.