影響臺灣地方政府選擇空氣污染防制政策工具的條件因素

Abstract

在臺灣地方政府，防制空氣污染政策工具的選擇，相關影響因素有哪些？現有研究在討論臺灣空氣污染時，多數採用質化研究方法，並側重在公民社會以及中央政府的角色，相對忽略了地方政府的決策過程。本研究試圖結合多元流理論和社會網絡分析法，針對環境部《空氣品質改善維護資訊網》提供的22個縣市的空氣污染防制計畫書（109年至112年）進行分析。多元流理論主張，政策形成過程中有問題流、政策流和政治流，如能成功耦合，政策變遷的成功機會將大大提高。而利用社會網絡分析，則有助於捕捉在政策流中政策社群的互動，據此能分析不同政策行動者之間的互動模式，以及如何影響政策工具的採用，以補充既有多元流理論的不足。 研究結果修正了三流完全耦合的傳統觀點，「部分耦合」更能解釋穩定情境下的政策制定邏輯。例如，污染改善幅度差的縣市，若有多元的參與者且發生政黨輪替時，能促進工具多樣性的提升。此外，除了政策窗開啟外，行動者資源與網絡互動同樣是影響政策工具選擇的關鍵因素。社會網絡分析顯示，高網絡密度與高協同性的縣市在政策工具密度與執行效能上表現更佳，支持政策社群整合程度對政策選擇影響的假設。最後，質性比較分析法揭示地方政府在多元條件組合下能達成類似政策效果的彈性，並強調臺灣空氣污染治理中，志工的參與與政策行動者多樣性是影響政策工具選擇的核心條件，並能發揮穩定影響力。最後，本研究為地方政府在政策設計與執行層面提供了具體建議，包括靈活運用行動者資源、促進協作與跨域合作，以改善空氣污染治理成效。

What are the factors influencing the selection of air pollution control policy tools by local governments in Taiwan? Existing research on air pollution in Taiwan often adopts qualitative methods and focuses on the roles of civil society and the central government, while relatively neglecting the decision-making processes of local governments. This study seeks to address this gap by integrating the Multiple Streams Framework (MSF) and Social Network Analysis (SNA) to analyze air pollution control plans from 22 local governments, as provided by the Ministry of Environment's Air Pollution Control Program (2020–2023). The MSF emphasizes that successful coupling of the problem, policy, and political streams greatly increases the likelihood of policy change. SNA complements this by capturing interactions within policy communities in the policy stream, enabling the analysis of interaction patterns among different policy actors and their influence on the adoption of policy tools, thereby addressing the limitations of the MSF. The study modifies the traditional view of complete coupling across the three streams, showing that "partial coupling" better explains the logic of policy formulation in stable contexts. For instance, in counties with limited improvements in air pollution reduction, the presence of diverse participants combined with a change in ruling party can enhance the diversity of policy tools. Furthermore, beyond the opening of policy windows, the resources of policy actors and network interactions are equally critical factors in determining the selection of policy tools. The SNA results indicate that municipalities with high network density and cohesion perform better in terms of policy tool density and implementation effectiveness, supporting the hypothesis that the integration of policy communities significantly influences policy choices. Finally, Qualitative Comparative Analysis (QCA) reveals the flexibility and equifinality of achieving similar policy outcomes under diverse combinations of conditions. It underscores the importance of volunteer participation and the diversity of policy actors as core and stable conditions affecting the choice of policy tools in Taiwan's air pollution governance. This study provides specific recommendations for local governments to enhance policy design and implementation, including the flexible use of actor resources, promoting collaboration, and fostering cross-regional cooperation to improve the effectiveness of air pollution control policies.