強制性碳定價政策進程之跨國差異探析：以台灣及韓國為例

Abstract

在日益嚴峻的全球氣候變遷危機下，包含總量管制排放交易及碳稅費等強制性碳定價政策，成為近年各國推動溫室氣體減排的關鍵工具。然而，台灣與韓國作為歷史脈絡及產業與能耗結構皆高度相似的兩個東亞發展型國家，碳定價政策推動進程上卻展現出顯著跨國差異——於相近時期啟動政策進程後，韓國成功於 2015 年啟動全國 ETS 體系，台灣進程卻相對大幅落後，遲至2023年方才完成減排效果仍相當有限的碳費立法。 本研究以比較政治經濟學視角出發，結合發展型心態等發展型國家理論，並採次級資料分析、非正式訪談及成對比較等法，聚焦兩國 2008 年起共四段總統任期，梳理台韓強制性碳定價政策進程，並探析其間產生政策進程差異的情形與原因。研究發現以下四項因素：兩國發展型心態的內涵及強制性碳定價嵌入其中的角色、心態在行政部門官僚中的一致程度、將發展型國家施政主軸及其配套機關與措施等轉化爲推動進程之載具、在進程推動過程中總統持續貫徹高昂意志並能在其中介入部際競爭並恰當抑制反對聲音，為政策進程出現跨國差異的關鍵原因。韓國案例的相對成功得益於李明博政府形塑的強烈發展型心態及心態於行政部門官僚中的高度一致、對於進程推動載具的良好設計及過程中以高度意志貫徹並介入扭轉環境方劣勢同時能恰當抑制反對聲音；台灣案例的遲滯則在於發展型心態內涵及其不一致程度未提供進程推動有利基礎、過程中未具備足夠意志堅持推動，亦未足夠介入部際競爭且往往過度傾向私部門立場。 本研究對於既有研究對東亞發展型國家強制性碳定價政策發展的理解，及跨國氣候政策進程差異的不足進行補充，梳理台韓政策進程，亦藉案例分析找出跨國差異之關鍵因素，為未來欲推動強制性碳定價政策之發展型國家提供政策建議，同時為聚焦氣候政策跨國差異之未來研究提供初步研究基礎與分析框架。

Regulated carbon pricing policies—such as cap-and-trade systems and carbon taxes and fees—have emerged as key instruments for countries seeking to reduce greenhouse gas emissions in recent years. However, Taiwan and South Korea, two East Asian developmental states with highly similar historical contexts, industrial and energy consumption structures, have shown significant cross-national variance in their regulated carbon pricing policy progress. Although both initiated discussions around the same time, South Korea launched a nationwide Emissions Trading System (ETS) in 2015, while Taiwan lagged, only establishing a limited carbon fee system in 2023 with minimal emission reduction effects to date. Adopting a comparative political economy perspective and drawing on developmental state theory—particularly the concept of the developmental mindset—this thesis employs secondary data analysis, informal interviews, and paired comparison methods, focusing on four presidential administrations in both countries since 2008 to trace the trajectories of carbon pricing policies and to explain their cross-national variance. Key explanatory factors include: the content of the developmental mindset and the role of regulated carbon pricing within it; the level of mindset unity across the executive branch; the design of the developmental paradigm as a policy progress vehicle; and the president’s persistent political will, including appropriately interventions in network competition and the suppression of opposition. The thesis finds that South Korea’s relative success stems from President Lee Myung-bak’s strong developmental mindset, high level of mindset unity within the executive branch, effective design of developmental paradigm as a policy progress vehicle, and Lee's strong political will, which enabled him to reverse disadvantages of the environmental network and suppression of opposing voices. In contrast, Taiwan’s delay is attributed to content and low level of unity of the developmental mindset, weak political will, limited executive intervention, and excessive deference to private-sector interests. This thesis contributes to the literature by addressing gaps in regulated carbon pricing policy developments in East Asian developmental states and explaining cross-national variance in climate policy. Through in-depth case comparison, it identifies key factors driving the variance between Taiwan and South Korea, offers policy recommendations for future developmental states seeking to pursue regulated carbon pricing systems, and provides a foundation for future cross-national climate policy research.