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題名:地方政府毒品防制政策之組織建構及推動策略-我國縣市政府毒品危害防制中心之研究
作者:張筵儀 引用關係
作者(外文):Chang, Yan-Yi
校院名稱:國立中正大學
系所名稱:政治學研究所
指導教授:詹中原
學位類別:博士
出版日期:2011
主題關鍵詞:府際關係政策協調毒品危害防制中心混合方法組織設計網絡治理Drug Abuse Prevention CenterIntergovernmental RelationsMixed methodsNetwork GovernanceOrganizational DesignPolicy Coordination
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台灣社會毒品日趨氾濫,使得民眾在毒癮的驅使及毒品販賣暴利的誘使下,鋌而走險犯罪之比例隨之日漸攀升。據法務部統計,目前台灣監獄約有近60%的罪犯與毒品犯罪有關,此一現象顯示毒品危害防制已成為國內治安當前最迫切需要解決的問題。此外,中央政府因意識到毒品危害的嚴重性,故已規劃籌設「中央毒品危害防制會報」,並於2006年5月中旬由蘇前院長主持召開第一次跨部會會議。惟毒品危害的防制,除中央政府的政策規劃之外,位居政策執行第一線之地方政府的配合也很重要。截至目前各縣市政府毒品危害防制中心之設置雖有雛形存在,但仍未出現如何較有效率的政策協調及管理機制,此一現象將使「中央毒品危害防制會報」所達成之政策決議,面臨無法有效在縣市政府貫徹執行的窘境。針對上述種種現象,本文提出研究問題:(一)縣市政府毒品危害防制中心內部各機關的網絡治理關係為何?(二)縣市政府毒品危害防制中心如何做為地方政府與地方政府之間(府際關係)橫向聯繫的管道?(三)縣市政府毒品危害防制中心如何扮演中央與地方毒品危害防制政策協調的角色?(四)縣市政府毒品危害防制中心的組織架構設計如何做為地方毒品犯罪查緝、衛生保健、健康教育等危害防制工作之功能?(五)縣市政府毒品危害防制中心如何做為協助吸毒者重返正常社會生活之正式管道?
目前各縣市政府已設置毒品危害防制中心,但是毒品防制政策才剛起步,相關配套措施還未充足。因此,毒品危害防制中心是加強毒品防制的關鍵角色。本文檢視相關文獻,藥物濫用與犯罪理論、美國毒品使用狀況、毒品戒治過程、施用毒品行為、國內外毒品戒治模式、反毒政策執行與評估以及地方毒品防制中心等,發現目前在縣市政府毒品危害防制中心的研究尚屬於發展之中。此外,本研究探討毒品危害防制中心運用之網絡治理、政策協調、府際關係、組織設計之理論基礎,並參考國外中央及地方政府毒品政策之經驗借鏡(例如:美國、荷蘭、澳洲、英國、日本、韓國、中國大陸、香港、馬來西亞、泰國以及聯合國等),以做為毒品防制中心組織建構改進之建議。
在研究方法方面,本研究使用量化研究因素分析SPSS統計分析與質化研究訪談方式Nvivo 9質化分析軟體的應用,來建構出混合方法(mixed methods)研究的運用模式。除了可以增加毒品防制的廣度之外,更可增加其毒品防制的深度。混合方法運用方式分為:一、第一階段質性訪談;二、第二階段新店勒戒所之受勒戒人之前測問卷;三、第三階段二十一個地檢署觀護人之正式發送問卷;四、第四階段質化研究-次級資料分析的運用分析;五、將上述四個階段予以分析解釋,形成第五階段混合方法的應用。再者,目前針對毒品防制的推動策略與措施:一、推動策略:在「拒毒」之具體推動措施:加強清查PUB、KTV、MTV、泡沫紅茶店、網路咖啡店、電子遊藝場,賓館、汽車旅館、出租公寓及空屋;海洋音樂祭、園遊會;教育宣導、錄影帶、漫畫;社區宣導。在「戒毒」之具體推動措施:法務與醫療合作模式;毒品犯受保護管束人醫療戒癮模式;成立獨立專責戒治所;社區追蹤輔導機制;毒癮戒治暨社區復健計畫。「緝毒」方面之具體推動措施:針對製造、運輸毒品,進行追蹤打擊。二、橫向聯繫:毒品危害防制中心需要由地方政府的衛生、警政、司法、教育及社福等各行政單位進行統合以及民間部門等合作,並且與醫療單位、觀護協會、更生協會、戒毒中心、專責戒治所、社區等發展協調關係,形成橫向聯繫關係才能有效地防制毒品對社會的危害。三、組織設計:本研究發現毒品危害防制中心本身組織設計即是一種任務性編組,由地方政府各局處首長兼任,約三個月到半年開會一次,視其各地方政府之需求而定。四、毒品政策之哲學基礎:傷害措施(Harm Reduction)之毒品策略逐漸在歐美各國興起,成為尋求解決毒品問題之新思維,以減少成癮行為之使用者對其所處社會所帶來的有害後果。
最後,本文的研究建議為:一、仿效加拿大毒品政策網絡關係,讓吸毒者可以參與反毒政策;二、增加毒品危害防制中心經費以及專業人力追蹤輔導;三、反毒目標一致的問題,定期召開反毒共同會報;四、加強與民間團體聯繫,引進民間力量;五、朝向法制化運作,建議修改「毒品危害防制防制條例」來著手;六、執行量化績效評鑑,仍需要強調質化內容以改善反毒實質內容;七、任用受勒戒人或更生人於政府機關工作;八、成立社區戒毒輔導中心。再者,未來研究方向為:一、毒品危害防制中心混合方法的運用;二、毒品危害防制中心績效制度的設計;三、毒癮者經過毒品危害防制中心服務的戒治成效;四、毒品危害防制中心理論挑選的使用與五都選舉之後的改變;五、毒品危害防制中心政策執行與評估。
According to the statistics of Ministry of Justice, it’s about 60% crime related with drug abuse in Taiwan during these years. This shows that drug abuse problem has become more and more serious. In addition, some studies indicate that the view of drug abuser has been changed from being a “criminal” to a “patient”. As a result, “what caused this change” is one of the questions that would be explored in this article. Since July 2006, twenty-five city/county governments have established “Drug Abuse Prevention Center”, which was one of the policy goals of the Ministry of Justice. However, there might be some gap appeared between central and local government, scholars suggested the concept of policy network will be helpful to remedy this problem.
This paper addressed the following research questions: (a)What is the relationship of the network governance within the Drug Abuse Prevention Center? (B) How does the Drug Abuse Prevention Center as a communication channel between local governments, i.e. intergovernmental relations, to link the horizontal relationship? (C) How does the Drug Abuse Prevention Center play the role of negotiation between the central and local governments? (D) What are the functions of the organizational structure of Drug Abuse Prevention Center? (E) How does the Drug Abuse Prevention Center assist drug addicts to return to normal life?
Recently, the local governments have settled Drug Abuse Prevention Centers; however, the drug-prevention policy is just getting started, and related support measures have not been sufficient. Therefore, the coordinating role of Drug Abuse Prevention Center should be strengthened. In reviewing the relevant literatures, including the theory of drug abuse and crime, the U.S. drug situation, physical therapy of drugs, drug use behavior, and etc., it was revealed that the Drug Abuse Prevention Center is still evolving. Additionally, this study was to investigate the background theories of the Drug Abuse Prevention Center, i.e. network governance, policy coordination, intergovernmental relations, and organizational design, with the reference to foreign governments from the experience of drug policy (for example: the United States, the Netherlands, Australia, United Kingdom, Japan, Korea, China, Hong Kong, Malaysia, Thailand and the United Nations, etc.) to suggest modifications for constructing the organization of Center.
In research methods, we use the quantitative research with SPSS statistical analysis and qualitative research interviews with Nvivo 9 qualitative software, which construct the mixed methods of this drug case study. The reason for using the mixed methods is to increase the breadth and the depth of drug prevention. The mixed methods were divided into five stages. First, the qualitative interviews were adopted. Second, the pre-test questionnaire of the Sindian Drug Abuser Treatment Center was conducted. Third, the formal-test questionnaire was used to the twenty-one Prosecutors’ Offices all over the Taiwan. Fourth, the secondary data analysis was used. Fifth, we combine the data of stage 1 to stage 4 to mix them as the mixed methods.
Furthermore, some strategies and measures are recommended for the Drug Abuse Prevention Center as follows. First, implementing concrete measures, like conducting checkpoint more frequently, advocating the plan of drug rehabilitation, and introducing community counseling mechanism. Second, Drug Abuse Prevention Center should have horizontal linkage relationship by cooperating with public and private sector units. Third, Drug Abuse Prevention Center should hold a meeting about three to six months each time based on the need of task force. Fourth, drug policy should be reexamined from philosophical perspective.
Finally, some suggestions for this study are presented as follows. Firstly, learning from the example of Canada's drug policy network relationships to encourage drug users participate in anti-drug policy. Secondly, the Drug Abuse Prevention Center is to increase the fund for human tracking and professional counseling. Thirdly, achieve the same goal of anti-drug and regularly held joint anti-drug meeting. Fourthly, strengthen ties with civil society, and bring in non-governmental forces. Fifthly, operate toward legalization and modify the“Drug Control Prevention Act”. Sixthly, perform quantitative performance evaluation and still require emphasis on content quality to improve the drug substance. Seventhly, those people were appointed by the government agencies. Eighthly, we need to set up the community drug counseling center. Furthermore, there are some suggestions for future research. It is recommended that doing research from different ways, such as using the mixed methods, designing the performance system, selecting different theory to use and analyzing the change of new five urban, and evaluating the effectiveness of drug treatment.
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