臺北花卉批發市場遷建之政策分析

Abstract

臺北花卉批發市場的設置與興建，牽涉到基地位置的選擇、都市計劃變更、土地開發、建築法規、交通與環境影響、公共建設委外經營，及市場交易制度等幾個層面；在花卉產業中，其運銷體系以批發市場為軸心，擔負花卉集中、均衡與分散的運銷職能工作。臺北花卉批發市場因為位處臺北市區，屬消費地批發市場，市場經營的良窳與消費者及承銷商息息相關。 公共政策決策過程常涉及多元參與者，使公共政策決策過程變得相當複雜，其中網絡的參與者範圍確實難以區分；在各種團體間，有時是交互發生的，因此對於政策產出因果關係，有時難以解釋。在花卉批發市場遷建政策中，包含中央與地方政府的國家機關，屬民間社會的花商、花農、市場經營主體、學者專家及民眾等；這些不同的利害關係人，卻有其交互發生的情形，如花商與花農，部分亦為花卉批發市場的經營主體組織成員，因此在各種團體中的關係相互牽連。這些多元參與者，使政策決策過程變得更錯綜複雜，其間的因果關係也不易確定。因此，如何從臺北花卉批發市場歷史結構的變遷，及政治經濟演變來探討相關行為者間的因果脈絡，分析政策活動，進而評估政策關鍵問題，為本文探討的主要議題。 本文以臺北花卉批發市場遷建政策中，政府部門與民間團體組織與制度間隱含的特定政治與經濟偏差觀點，來探討政策決策變化因素及執行困境；分析市場遷建政策中，中央政府與臺北市政府對政策認知落差、臺北市政府各單位資源與資訊互動、政府部門與民間團體間的合作競爭關係等，所隱含的因果性影響。

Establishment and building of flower wholesale of Taipei are related to selection of location of the base, modification of metropolitan plan, land development, construction regulations, transportation and environment impacts, outsourcing operation of public construction, market trading system and other aspects. Transportation and sales system of flower industry centers on wholesale market and carries out centralization, balancing and distribution of flower and other functions of transportation and sales. Flower wholesale market of Taipei lies in urban area of Taipei and is a wholesale market located in consumption place. Therefore, success of market operation is closely related to consumers and dealers. Decision-making process of public policies is usually related to diversified participants, which makes this process fairly complicated. It is really difficult to distinguish network participants. Various groups sometimes interact with each other. Thus it is sometimes difficult to explain causal relationship of policy output. Relocation policies of flower wholesale market involve authorities of central and local governments and members of civil society, such as flower dealers, flower growers, market operators, scholars, experts and the public. These different stakeholders sometimes interact with each other. For example, some flower dealers and flower growers are also members of operator organizations and therefore are interrelated among various groups. These diversified participants make decision-making process of policies intricate and it is also not easy to determine the casual relationship. This paper mainly aims at exploring casual relationship among related actors, analyzing policy activities and evaluating key policy issues according to historical structure transformation of flower wholesale market of Taipei and economic and political evolution. According to specific political and economic opinion differences among governmental departments, civil groups and organizations and systems which are implied in relocation policies of flower wholesale market in Taipei, this paper discuss changing factors of decision-making of policies and difficulty of implementing the policies, analyze the causal relationship implied by different understanding of countermeasures between the central government and the government of Taipei, resource and information interaction among the government of Taipei and various entities, cooperation and competition relationship between governmental departments and civil groups, etc.