如何透過中央與地方協力推動循環經濟？： 宜蘭焚化廠底渣再利用的經驗

Abstract

我國目前已將循環經濟納為政府推動「5+2」產業創新政策之一，並且為解決焚化廠底渣去化問題，因此有必要將焚化廠底渣循環再利用。本研究即係以中央與地方行政協調協力合作治理觀點，透由訪談過程並輔以環境部焚化廠相關數據等資料，藉以探索我國循環經濟底渣再利用政策推動詳情，並檢視「風險規避論」在公務面的樣態及現象。 本研究發現，藉由強化中央與地方及公私間之協力合作，透過相關法令規章的共同擬定、獎勵制度的共同推動，以及地方政府與民間企業間的協力合作，確實有助於提昇焚化廠底渣之再利用率。本研究亦於宜蘭縣利澤焚化廠個案中發現，水泥廠具有高溫、高擾流及滯留時間長等條件能有效去有害物質，因此基於風險規避，水泥廠乃成為宜蘭縣焚化再生粒料之主要去化管道。另外，宜蘭縣基層工程使用單位，亦基於風險規避，大多傾向依既有經驗及工法進行施工。惟本研究也發現若透由獎助金等獎勵措施，則可促使原先未使用焚化再生粒料之基層工程使用單位，基於奬助金誘因開始使用焚化再生粒料於該管公共工程中。因此，本研究認為若能在中央及地方行政協力合作下，透過相關法令規章的共同擬定及獎勵制度的共同推動，除了可提昇底渣再利用率，亦可逐步提升焚化再生粒料再利用於公共工程，達成循環經濟之政策目標。

Circular economy has become one of the government's "5+2" industrial innovation policies. In order to solve the problem of decontamination of incineration plant bottom ash, it is necessary to recycle the incineration plant bottom ash. This study is based on the perspective of central and local administrative coordination and cooperative governance, through the interview process and supplemented by relevant data from the Ministry of Environment's incineration plants, to explore the details of the promotion of Taiwan's circular economy bottom ash reuse policy, and to examine the "risk aversion theory", about appearances and phenomena existing in the government departments. This study found that by strengthening the cooperation between the central and local governments and the public and private sectors, through the joint formulation of relevant laws and regulations, the joint promotion of incentive systems, and the joint cooperation between local governments and private enterprises, it will indeed help to improve the recycling rate of bottom ash. This study also found in the case of the Letzer Incineration Plant in Yilan County that the cement plant has 3T conditions such as high temperature, high turbulence and long residence time, which can effectively remove harmful substances. Therefore, based on risk avoidance, the cement plant has become the preferred choice and primary removing way for incineration recycled aggregates in Yilan County. In addition, Yilan County grassroots project users are also based on risk avoidance, and most of them tend to carry out construction based on existing experience and construction methods. However, this study also found that through incentive measures such as subsidies, it can encourage grassroots project users that have not previously used incinerated recycled aggregates to start using incinerated recycled aggregates in public projects based on the incentives of the subsidies. Therefore, this study believes that if the central and local administrations can work together, through the joint formulation of relevant laws and regulations and the joint promotion of the incentive system, in addition to increasing the bottom ash reuse rate, the reuse of incineration recycled aggregates can also be gradually increased in public works, and finally achieve the policy goals of circular economy.