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題名:焦點事件與政策停頓:以核四封存為例
作者:賴家陽
作者(外文):Chia-Yang Lai
校院名稱:國立臺灣大學
系所名稱:政治學研究所
指導教授:林水波
學位類別:博士
出版日期:2017
主題關鍵詞:政策變遷政策停頓焦點事件核四政策核四封存policy changepolicy hiatusfocusing eventsthe fourth nuclear plant policycapsulating the fourth nuclear plant policy
原始連結:連回原系統網址new window
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核四計畫自1980年提出,1999年開始興建,歷經30餘年來的政策規劃到執行過程,可說是在連串紛擾中度過,2011年3月11日日本發生福島核災事件,震撼全世界,臺灣核電政策同樣受到強烈衝擊,核四之政治結構產生板塊移轉,行政院2014年4月28日宣布核四封存,讓核四進入一個「政策停頓」狀態,此一讓原有政策暫時終結,以等待情勢演化進入政策復原或終結階段的特殊政策演化樣態,引發吾人的好奇,值得進一步探究。
本研究探討的問題包括:第一,政策停頓部分:其內涵指涉、生成原因及造成影響為何?第二,焦點事件部份:包括焦點事件的特質及對於政策影響有哪些?核四政策在福島核災等不同焦點事件中的演化過程為何?第三,焦點事件與政策停頓的關連性部分:包括焦點事件發生後,相關的政策倡導聯盟與行動者之間的互動情形又如何?以及焦點事件對於驅使政策停頓上產生何種影響?
為有效回答上述問題,本研究從Birkland焦點事件政策變遷模型出發,設定相關命題,建構出焦點事件以「團體動員」、「政策學習」、「政策衝突」等3個層面驅使政策停頓的研究架構。另外,本研究透過文獻分析,以及對實際參與核四公投與封存決策過程之相關部門關鍵人士進行深度訪談,並運用敘事觀點,回顧福島事件發生後核四演化故事,以福島核災、核四公投、林義雄禁食等焦點事件與政策停頓因果關係進行積極性的對話,以檢證相關研究命題與架構真假的類屬。
研究發現可分為三大主軸論述:第一部份,就福島核災等3個焦點事件的衝擊,透過本研究省思,帶來包括壓力孳生停頓妙策、黨際治理建構的必要等多項知識啟蒙。第二部分,就焦點事件命題、及焦點事件驅使政策停頓之研究架構進行檢證。有關焦點事件命題驗證結果,瞭解包括核四焦點事件一旦發生,確實隨即引起相關決策者對原本政策的反省,至於反省的面向,本會隨著反省者的動機而走向政策趨異(policy divergence) 等現象。至於焦點事件驅使政策停頓研究架構之檢證結果可得知:焦點事件確能自下列3面向驅使政策停頓,包括:(一)團體動員構成壓力,醞釀出停頓之脈絡環境;(二)政治學習引領取向融合,產出第三選擇;(三)為了緩和社會躁動,乃透過政策停頓以擱置瀕臨破壞之衝突。第三部分,本研究提出政策停頓生成觀察重點,包括政經環境系絡改變、治理聯盟改變等面向,提供主事者依循自身的政治偏好,選擇政策停頓的策略,以攻克政策僵局時的判斷參考。
此外,本研究也發現:最後的封存決策,基本上是循著「垃圾桶模式」產出,而非全如Birkland焦點事件政策變遷理論所建構的線性過程;此外,職司機關基層技術官僚雖早已透過工具性學習,將封存成為核四可能退場套案之一,只是這個學習結果,一直僅限於相當低階的技術官僚層次,無人重視,這些封存知識最後也未與政府高層封存決定間存在明顯地連動關係。
研究建議部分,本研究則以核四封存為例,針對政策停頓提出包括:應持續政策診斷、擴大潛在顧客、培塑外部中人等10項建議管理原則。
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