永續城市治理：氣候變遷下台北市的挑戰與困境

Abstract

中文摘要 全球僅約半數的人口居住在都市中，但都市卻排放80％的溫室氣體，都市可以說是最大的污染源；但另一方面，都市卻又是最有能力因應氣候變遷的挑戰，因此，不論是從減緩（mitigation）或調適（adaptation）的角度來檢視，都市都扮演著重要的角色。台灣是一個高都市化的國家，有79％的人口居住在都市中，台北市一向居於全國各都市之首，因此本論文乃以台北市為研究對象，從永續城市（Sustainable city）治理的角度來看台北市在面對氣候變遷時的挑戰與困境，作為台北市及其他縣市施政時的參考。 本研究在資料的蒐集上主要採行文獻分析法及深度訪談法。蒐集近5年來台北市政府與氣候變遷相關的出版品，並參考國內外相關之論述進行歸納分析，了解台北市在因應氣候變遷的回應方式；此外，本人並訪談6位在國內環境領域頗具影響力的人士從不同角度來評析台北市在因應氣候變遷的決策時所遭遇的挑戰和困境。 本研究分從減碳策略、防災及調適策略、韌性城市（Resilient City）的治理三個面向來觀察台北市所遭遇的挑戰與困境，主要的心得如下： （一） 相較於全國人均溫室氣體排放量仍呈現向上增加的走勢，台北市的人均排放量自2008年以後則逐年減少，可見台北市在推動節能減碳的工作有較全國更優秀的成果。 （二） 台北市各界真正在力行節能減碳的只有公部門和住宅、社區部門，排碳量合計超過八成的商業部門和運輸部門，則沒作出明顯的貢獻。多位受訪者認為主要是油電價格偏低，導致民間部門缺乏改善意願，但油電價格或能源稅的決策權在中央，讓「油電價格偏低」成為台北市推動節能減碳的困境之一。 （三） 台北市做了很多防洪、抗洪的準備工作，但對於海平面上升、極端氣候事件頻傳所可能帶來的影響，市府相關局處則還在評估中。此外，在水資源、維生基礎設施、土地使用、產業及能源、農業及生物多樣性、健康等六個領域，台北市仍停留在例行性的作業或傳統的防災觀念的階段。簡單說，台北市的行動與調適目標之間，還有一段巨大的落差。 （四） 面對極端氣候頻傳，都市治理的思維也逐漸從「不會淹水」轉變為「不怕淹水」，城市必須重新規劃土地的用途，把該屬於自然的還給自然，不與水爭地、維持生物多樣性；縱使遭受重大的災難擾動，城市仍應保有恢復既有系統平衡的韌性。 （五） 韌性城市最基礎的工作就是對於環境的脆弱度進行風險的評估及控管，迴避在高風險地區進行開發，但在寸土寸金的台北市要限制土地的開發將是嚴苛的挑戰，對於不願意或没能力遷出高風險區的居民府也應提供協助，越南胡志明市的成功案例，則可以供台北市參考。 （六） 韌性城市治理成功與否的另一個關鍵就是協同治理，包括目標的協同、政策的協同、治理機制的協同。協同的治理機制應包括府際關係（intergovernmental relations , IGR）和公私夥伴關係（Public-Private Partnerships , PPP）的建立，但很可惜的，台北市民間部門的力量沒有發揮，而台北市與中央或鄰近各縣市的合作平台也只能發揮小部分的功能。建立協同機制將是台北市需要克服的問題。

Abstract About half of the world’s population lives in urban cities. However, these cities release 80% of the greenhouse gases, becoming the largest source of pollution. But on the other hand, only cities have the ability to adapt and face the challenges of climate change. So, whether in the aspect of mitigation or adaptation, cities play a very important role. Taiwan is a highly urbanized country. About 79% of the population lives in cities, and Taipei City has always been in the lead. Hence, Taipei City will be the object of study for this proposal. Using the aspect of governing sustainable cities in observing how Taipei City faces the challenges and difficulties of climate change. The results of this proposal will be of future reference in governing other cities. The data used in this study are mainly gathered through documentary analysis and depth interview. By collecting related publications of the Taipei City government for the last five years, and analyzing related topics, domestic and foreign, we have a basic understanding of Taipei City’s reaction to climate change. Also, I’ve personally interviewed six domestic experts, who have certain authority in this area, to view from different angles, to evaluate, and to analyze the challenges and difficulties Taipei City face when dealing with climate change, and the decisions made. This research is divided into three governing aspects, carbon reduction strategy, disaster prevention, adaptation strategy, and resilient city, to observe the challenges and difficulties Taipei City face. Summary are as follows: (1) Compared with the people’s average rate of greenhouse gas emission, which is still increasing, the average rate of emission of the people living in Taipei City has gradually decreased year by year since 2008. This is a visible result of the Taipei City government boosting energy conservation and carbon reduction better than the other cities in the country. (2) So far, only the government, residences, and communities are truly carrying out energy conservation and carbon reduction. However, the industries and transportation, whose carbon emission take up over 80%, has shown no visible improvement. Most of the respondents believe the low cost of oil and electricity causes low participation of these industries. But the right to make decisions lie with the central government, causing difficulties for Taipei City to carry out energy conservation and carbon reduction. (3) Taipei City has readied itself for disasters such as floods, but with sea level rising and extreme weather, relative apartments are still estimating the effects it brings. Also, in areas such as water resources, basic infrastructures, land use, industries, energy, agriculture, and biodiversity, and health, Taipei City is still at the stage of routine procedures or traditional disaster prevention. In other words, Taipei still has a long way to go. (4) Against the extreme weathers, the government has changed from “will not flood” to “not afraid of floods”. The city has to reorganized the uses of land, return the necessary land back to nature, reclaim lands, maintain biodiversity. Even in the face of huge disasters, the city will still be able to regain the resilient system. (5) The basic of resilient cities is to estimate and control the vulnerability of the environment and avoid developing high-risk areas. But to control the use of land in Taipei City is a real challenge, where there space is limited. The government should also assist the residents of these places in moving out of the dangerous areas. The successful example of Ho Chi Minh City should be of reference to Taipei City. (6) To successfully govern a resilient city depends also on cooperation, including cooperation in goals, management mechanisms. Management mechanism includes the establishment of intergovernmental relations and public-private partnerships. It’s a pity the local industries have failed to display to power of cooperation, and cooperating with the central government or with neighboring cities has little effect. Management mechanism will be something Taipei City has to work on.