能源公正轉型之法制化研究：以蘇格蘭《燃料貧窮法》為例

Abstract

在氣候變遷日益加劇的背景下，各國陸續提出邁向淨零排放的承諾與目標，並推動一系列政策加以因應，其中以能源轉型為實現減碳的關鍵策略之一。然而，轉型過程可能導致能源成本上升或資源重新分配，進而加劇原有的能源不平等，對脆弱族群造成嚴重衝擊，凸顯「能源公正轉型」的重要性。確保轉型過程中的公平與正義，已成為各國制定淨零政策不可忽視的課題。 本研究以蘇格蘭《燃料貧窮法》為例，採用文獻分析法蒐集相關資料，並參考Herweg修正版的多元流框架，將政策過程分為「議程設定」與「決策」兩個階段進行分析。研究發現，在議程設定階段，蘇格蘭長期且嚴重的燃料貧窮問題與政策目標未實現為形成問題流的關鍵因素；政治流方面，利益團體的施壓與主要政黨的關注下，為議題注入政治動能；而在政策流中，學術研究的發展與專家小組的建議，促使政策提案逐漸成熟，三流匯聚促成議程窗開啟，使法案進入立法程序。 在決策階段，法案審議過程中，在增設中期目標方面，展現出務實性與可行性；新增極端燃料貧窮與燃料貧窮差距的定義與目標、完善增強供暖制度及調整最低收入標準方面，均反映出對脆弱族群需求與地區差異的關注。此外，法案亦將燃料貧窮諮詢小組設為法定機構，以強化監督機制，確保政策落實與持續改進。本研究期許透過蘇格蘭能源公正轉型法制化的經驗，為台灣在能源貧窮與能源脆弱度領域上提供政策參考。

As climate change continues to intensify, many countries have set commitments and goals toward achieving net-zero emissions, accompanied by a range of policy measures. Among these, energy transition stands out as a key strategy for carbon reduction. However, the transition process may lead to rising energy costs or the reallocation of resources, potentially exacerbating existing energy inequalities and severely impacting vulnerable groups. This underscores the importance of a "just energy transition." Ensuring fairness and justice throughout the transition has become a crucial consideration in the development of net-zero policies by governments worldwide. This study takes Scotland’s Fuel Poverty (Targets, Definition and Strategy) (Scotland) Act 2019 as a case study, adopting document analysis to collect data. It applies Herweg’s Multiple Streams Framework to divide the policy process into two stages: agenda-setting and decision-making. The findings show that in the agenda-setting stage, in the problem stream, the long-standing and severe issue of fuel poverty, along with unmet policy goals, served as critical drivers; in the political stream, pressure from interest groups and attention from major political parties provided political momentum for the issue; in the policy stream, the development of academic research and recommendations from expert groups facilitated policy proposal maturation. The coupling of the three streams opened a policy window that enabled the bill to enter the legislative process. In the decision-making stage, the legislative deliberation process demonstrated both pragmatism and feasibility, particularly through the inclusion of interim targets. Moreover, the introduction of new definitions and goals for extreme fuel poverty and the fuel poverty gap, improvements to enhanced heating regimes, and adjustments to the minimum income standard all reflected a clear concern for the needs of vulnerable groups and regional disparities. In addition, the Act designated the Fuel Poverty Advisory Group as a statutory body, thereby strengthening oversight mechanisms to ensure the implementation of policy and ongoing improvement. This study seeks to provide policy recommendations for Taiwan in the areas of energy poverty and energy vulnerability, informed by Scotland’s experience in the institutionalization of a just energy transition.