解析MSC捕撈認證低普及率的制度性因素：臺灣的個案研究

Abstract

臺灣是全球重要漁業國，卻長期面臨永續發展的嚴峻挑戰。近年歐美針對我國遠洋漁業接連發出非法捕撈（IUU）警告指控，同時國際間愈加重視透過海洋管理委員會（MSC）捕撈認證推動永續漁業治理。然而，臺灣捕撈漁業迄今僅有少數漁隊通過MSC捕撈認證，整體採納率遠落後於國際趨勢，這引發「不想或不能」的疑問：業者不積極追求認證，究竟是缺乏意願，抑或受到體制資源與制度設計等因素的限制？ 本研究旨在釐清臺灣漁業MSC捕撈認證普及率偏低的核心原因。研究從市場、政府與非政府組織（NGO）三方互動切入分析，提出三項制度性假設：其一，主要外銷市場缺乏對MSC捕撈認證產品的明確需求，業者因而缺乏市場驅動力；其二，政府將漁業改進計畫（FIP）與MSC捕撈認證皆視為企業自願的市場行為，政策定位模糊且誘因設計不足，偏向鼓勵成本較低的FIP途徑而削弱業者追求MSC的動機；其三，民間團體推動MSC捕撈認證的力度不足，國際NGO對產業的施壓亦因產業結構與資源限制無法有效傳導至捕撈端，致使企業缺乏外部認證推力。 本研究採用質性取向的解釋性研究方法，透過歷史脈絡分析與半結構式深度訪談蒐集資料，共訪談政府主管機關、產業代表和環境團體等9位利害關係人。資料分析聚焦於企業市場行為、政府政策作為與NGO行動策略的交互作用，從制度面向辨識限制MSC捕撈認證推廣的結構性障礙。 研究結果印證上述制度性因素交互形塑了MSC捕撈認證在臺灣推動不易的困境。首先，市場誘因雖在特定高標準市場（如美國）提供取得認證的動力，但因部分臺灣出口市場未將MSC捕撈認證視為通路門檻，加之FIP提供一定程度替代性的市場准入途徑，市場推力有限。其次，政府將MSC捕撈認證視為企業自主應對手段，因此缺乏對MSC捕撈認證的整體規劃與工具定位，政策多採個案式輔導，現行補貼與制度設計不易引導業者投入認證升級。最後，民間監督力量不足導致永續壓力難以直達第一線漁船：跨國NGO對下游品牌和貿易商的批評未能有效影響上游船隊，而國內NGO聚焦沿近海漁業與勞動議題且資源有限，對遠洋漁業缺乏持續倡議和點名監督能力。上述三方面交互作用，形成MSC捕撈認證在臺灣採納不足的制度性瓶頸。 綜上所述，本研究從制度治理觀點指出，缺乏明確市場需求信號、政府政策角色被動及NGO動員力道不足，是臺灣捕撈漁業未能廣泛取得MSC捕撈認證的關鍵原因。本研究補充了既有文獻在漁業永續認證議題上的不足，強調私人認證治理與國家政策及公民社會互動的重要性，提供了跨市場、政府與民間NGO的整合分析視角。研究結論呼應國際永續漁業治理趨勢，建議政府需扮演更積極的規劃與協調角色，透過強化政策誘因與跨部門合作補足市場與民間力量之不足，以提升MSC捕撈認證在臺灣的推廣成效。

Taiwan is one of the world’s major fishing nations, yet it has long struggled with serious sustainability challenges. In recent years, the EU and the United States have repeatedly cited Taiwan’s distant-water fleet for illegal, unreported and unregulated (IUU) fishing, while the global community increasingly turns to Marine Stewardship Council (MSC) fishery certification to drive sustainable-fisheries governance. Nevertheless, only a handful of Taiwanese fleets have secured MSC fishery certificates, leaving national uptake well behind international norms and prompting a “willingness-versus-capacity” debate: do firms avoid certification by choice, or do institutional constraints hold them back? This study aims to clarify the underlying reasons for Taiwan’s modest MSC adoption. Analysing the interactions among markets, government and non-governmental organizations (NGOs), it tests three institutional propositions: (1) Taiwan’s principal export markets show insufficient demand for MSC-labelled seafood, depriving firms of market pull; (2) government policy, by treating fishery improvement projects (FIPs) and MSC as equally voluntary, provides ambiguous guidance and weak incentives, steering industry toward the cheaper FIP path; and (3) civil-society pressure is muted—international NGO campaigns seldom reach harvesters, and resource-limited domestic NGOs cannot sustain certification advocacy—so companies lack external impetus. Adopting a qualitative, explanatory design, the research combines historical analysis with semi-structured interviews of nine stakeholders across government, industry and environmental groups. It explores how corporate behavior, public policy and NGO strategies intertwine to produce structural obstacles to MSC uptake. The findings show that these institutional dynamics jointly restrict certification. Market incentives matter in high-standards destinations (e.g., the United States), but many Taiwanese outlets do not treat MSC fishery certification as a gatekeeper, and FIPs provide an alternative market-access path, limiting market pull. Government sees MSC as a voluntary response and provides only ad-hoc support, so current subsidies rarely motivate firms to certify. Meanwhile, weak civil oversight means sustainability pressure rarely reaches vessels: transnational NGO critiques of brands seldom filter upstream, and domestic NGOs, focused on coastal fisheries and labor issues, lack the capacity for sustained naming-and-shaming. Collectively, these forces form an institutional bottleneck. In sum, unclear market signals, a reactive policy stance and limited NGO mobilization are the chief obstacles to broad MSC fishery certification in Taiwan. By highlighting the interplay among private governance, state policy and civil society, this study enriches the certification literature and offers an integrated cross-sector lens. Echoing international practice, it urges government to take a proactive planning and coordination role, strengthen incentives and foster cross-sector collaboration to advance MSC uptake.