共享經濟時代汽車運輸業管制政策變遷之研究：以Uber公司進入臺灣為例, 2013-2019

Abstract

Uber使用新興科技，主打共享經濟模式，以新型態經營汽車運輸業，在極短的時間內席捲全球，衝擊各國的汽車運輸業市場以及造成各國管制政策上的棘手問題。Uber在2013年進入臺灣市場，因為侵蝕到既有計程車的載客市場和秩序，引發計程車業者強烈的抗議，也讓我國政府祭出各式手段欲對其採取管制措施，在2017年Uber甚至曾與租賃業者合作。但在受到政府取締的同時，Uber也因為其低廉的價格、高品質的服務和便捷的叫車系統，在臺灣培養出一群死忠的乘客。究竟政府應如何因應新興科技的進入，如何在管制與開放中取得平衡，是一門高深的課題。\n本文觀察政府對於Uber政策之變遷狀況，並以3I理論進行分析，嘗試瞭解為何政府在2013年到2019年間對於Uber之政策出現多次轉折，深入探討政策的制定和改變對相關利害關係人之影響。藉由蒐集立法院公報、相關媒體報導，並訪談13名曾參與或親身經歷Uber核心事務之人士，廣泛蒐集資料加以分析。\n本文認為政策變遷之關鍵，是政策網絡上的利益、理念和制度產生了變化，3個I之間相互影響，進而導致政策變遷。未來新興科技將不斷叩響臺灣市場的大門，政府應從Uber案例中發現既有法規永遠無法趕上科技的發展，僅能追隨其後，盡可能快速將法規完備並制定相關政策，要如何因應新型態產業的進入，在接納新科技和保護舊產業間取得均衡，讓新業者、傳統業者、消費者取得三贏，政府又能有效管制市場秩序，是為未來臺灣政府的一大挑戰。

Uber, a novel means of transport in the automobile transport industry, utilizes emerging technology and adopts the model of shared economy to seize the world by storm, impacting the global automobile transport market and becoming a major problem for countries when enforcing relevant management policies. Uber entered the Taiwan market in 2013, and because it ate into the existing taxi market and affected taxi driver operations, said operators protested strongly against it. Thus, the Taiwanese government implemented various means to control Uber. In 2017, Uber cooperated with rental companies. Despite being banned by the government, the cheap prices, high-quality services, and convenient ride requesting system of Uber allowed Uber to enjoy faithful passengers in Taiwan. In light of this emerging technology, how can the government strike a balance between controlling and allowing it is a topic that merits investigations.\nThis study observed how the Taiwanese government’s Uber-related policies changed. The 3I theory was employed for analyses to understand why said policies changed several times from 2013 to 2019 and how policy establishment and amendments affected stakeholders. This study collected Legislative Yuan gazettes and media reports as well as interviewed 13 people who had participated in or experienced Uber’s core affairs, obtaining a wide range of information for analyses.\nThis study determined that policy change was a key. It altered the profits, ideals, and systems in the policy network. The three I’s affected one another and caused policy changes. In the future, emerging technologies will keep entering the Taiwanese market. The Taiwanese government should learn from the case of Uber that existing regulations will never keep up with the development of technology. The government can only try to promptly make the regulations complete and establish relevant policies. Identifying the ways to deal with the entering of new industries, finding a balance between accepting new technology and protecting existing industries, allowing a win-win-win situation among new industry practitioners, conventional industry practitioners, and consumers while allowing the government to effectively maintain the order of the market are problems that the government must solve in the future.