我國非洲豬瘟防疫的全球治理與政策執行之探討：以農業委員會動植物防疫檢疫局新竹分局為例

Abstract

豬肉是國人獲得動物性蛋白質的最主要來源，而滷肉飯是平民美食，在大街小巷飄香。曾幾何時，這麼一點小確幸，將可能因非洲豬瘟闖關而在每天的飯菜中消失。非洲豬瘟防疫係為豬隻產業鏈的生存，農民的生存、滷肉飯的存在而戰。非洲豬瘟入侵，不僅滷肉飯沒有了，養豬場、屠宰場倒閉、員工失業、豬隻產業鏈受到重創，豬肉外銷市場消失，口蹄疫重創台灣的噩夢將重演。2018年8月中國大陸爆發非洲豬瘟，疫情迅速蔓延全境，並擴展至亞洲各國之際，我國繃緊神經，動員支援人力，將手提行李全數開箱檢查，阻絕非洲豬瘟於境外。 本研究以農業委員會動植物防疫檢疫局新竹分局為例，探討我國非洲豬瘟防疫的全球治理與政策執行，研究非洲豬瘟國際疫情帶來哪些挑戰?防檢局新竹分局及相關單位哪些特性與因素會影響政策執行的成效?非洲豬瘟政策執行機關如何與標的團體溝通互動以增加政策順服?我國如何與海峽對岸或其他國家聯手，以有效的防堵非洲豬瘟?等四個問題。 為回應這四個問題，本論文從「防疫政策本身因素」、「執行機關與人員因素」、「國內非洲豬瘟防疫因素」及「全球非洲豬瘟防疫因素」等四個面向探討影響非洲豬瘟政策執行的因素。本研究藉由深度訪談法訪談防檢局新竹分局人員、財團法人中央畜產會人員、桃園市動物保護防疫處人員、肉品市場業者、屠宰場人員及學術單位專家等熟悉現場行政人員，期能表達貼近第一線的心聲。 研究發現，首先，隨著國際非洲豬瘟疫情的發展，對豬隻產業鏈及防檢局等相關權責單位帶來更嚴峻的挑戰。第二，動植物檢疫局新竹分局、桃園市動物保護防疫處人員及中央畜產會等同質性高的三個專業單位能否確實分工合作，左右著非洲豬瘟防疫成敗。第三，在政策制定方面，需要設身處地了解業者的需要，從標的團體角度思考，找出政策不順服的原因，以推出能夠解決問題的合理政策。第四，在全球治理、國際合作方面，世界動物衛生組織（OIE）架構下，與美、日及中國大陸等合作，共同防堵非洲豬瘟。另，中國大陸在非洲豬瘟防疫案例、實務上有許多可供借鏡的地方，台灣則因口蹄疫的成功防疫也素有口碑，兩岸在非洲豬瘟防疫上有攜手合作的空間，兩岸破冰就從非洲豬瘟合作防疫開始。 政策建議方面，加強農委會防檢局與海關、衛福部的聯繫、就北部急需化製場議題，加強中央與地方協力、跨部會解決肉品衛生、防疫問題。再者，應推動集防疫、產銷履歷、現代化、肉品衛生於一身的屠體評級制度。第三、需要公共行政專家加入非洲豬瘟防疫決策團隊提供意見。第四、進入長期抗戰階段的非洲豬瘟防疫策略，需要打造一個全民參與的公共政策平台機制。最後，非洲豬瘟防疫成敗的關鍵，取決於現場實務面是否落實改善。以上研究建議提供決策單位參考。

Pork is the most important source of animal protein for Chinese people and cannot be replaced by other meat products. Braised pork rice is a common delicacy, fragrant in the streets and alleys. Once upon a time, such a little bit of luck may disappear from daily meals due to African swine fever.The African swine fever epidemic prevention system fights for the survival of the pig industry chain, the survival of farmers, and the existence of braised pork rice. When African swine fever invaded, not only did the braised pork rice disappear, but also the closure of pig farms and slaughterhouses, the unemployment of employees, and the severe damage to the pig industry chain. The pork export market has disappeared, and the nightmare of foot-and-mouth disease hitting Taiwan will be repeated.When African swine fever broke out in mainland China in August 2018, the epidemic spread rapidly throughout the country and spread to Asian countries, Taiwan tightened its nerves, mobilized support manpower, unpacked all hand luggage for inspection, and prevented African swine fever from overseas. This study takes the Hsinchu Branch of the Bureau of Animal and Plant Health Inspection and Quarantine under the Council of Agriculture （BAPHIQ）an example to discuss the global governance and policy implementation of African swine fever epidemic prevention in my country. Four questions：What are the challenges of the international outbreak of African swine fever? What characteristics and factors of the BAPHIQ and related units will affect the effectiveness of policy implementation? How does the African Swine Fever policy enforcement agency communicate and interact with target groups to increase policy compliance? and How can Taiwan join hands with mainland China or other countries to effectively prevent African swine fever? In response to these four questions, this paper explores the answer from four aspects: 'the factors of the epidemic prevention policy itself', 'the factors of executive organs and personnel', 'the factors of domestic African swine fever epidemic prevention' and 'the factors of global African swine fever epidemic prevention'. factors in the implementation of the plague policy. In this case study, the in-depth interview method was used to interview the personnel of the the BAPHIQ, the personnel of the National Animal Industry Foundation, the personnel of the Animal Protection Office,Taoyuan city government, the meat market operators, the slaughterhouse personnel, the experts of the academic unit and other on-site personnel, familiar with the scene. It is hoped that administrators and academics can express their voices close to the front line. The study found that, first of all, with the development of the international African swine fever epidemic, it has brought more severe challenges to the pig industry chain and relevant authorities. Secondly, the success or failure of African swine fever prevention is determined by whether the three highly homogenous professional units, such as the personnel of the BAPHIQ, the personnel of the National Animal Industry Foundation, the personnel of the Animal Protection Office,Taoyuan city government can truly divide and cooperate. Thirdly,in terms of policy formulation, it is necessary to put yourself in the shoes of the industry to understand the needs of the industry, think from the perspective of the target group, find out the reasons for policy disobedience, and launch reasonable policies that can solve the problem. Fourthly, in terms of global governance and international cooperation, under the framework of the World Organization for Animal Health (OIE), cooperate with the United States, Japan and mainland China to jointly prevent African swine fever. In addition, there are many places for reference in the case and practice of African swine fever epidemic prevention in mainland China. Taiwan is also known for its successful prevention of foot-and-mouth disease. There is room for cooperation between the two sides,the ice breaking of the two sides may begin with the cooperation of African swine fever prevention. In terms of policy recommendations, strengthen the connection between BAPHIQ. Customs, and the Ministry of Health and Welfare, strengthen the cooperation between the central and local governments, and cross-ministerial meetings to solve the problems of meat hygiene and epidemic prevention on the issue of the urgent need for the production of farms in the north. Furthermore, promote a carcass rating system that integrates epidemic prevention, production and sales experience, modernization, and meat hygiene Thirdly, public administration experts are required to join the African swine fever prevention and control decision-making team to provide advice. Fourthly, the African swine fever epidemic prevention strategy entering the long-term anti-Japanese war stage needs to create a public policy platform mechanism with the participation of the whole people.Finally, the key to the success or failure of African swine fever epidemic prevention depends on whether the on-site practical aspects are implemented and improved. The above suggestions are for reference by decision-making units.