菸害防制在近年已是一個相當廣受注目的公共衛生議題。不過，即便菸害防制法在我國業已有十三年的歷史，但我國民眾在環境菸害的暴露上依然未受到政府部門的適當保障。事實上，菸害防制理念的落實不應單從法律條文的訂定或政府的公共權威來著手，民眾的心理認知及自願性順服可能也是政策目標能否確實達成的關鍵要素之一。基此，本研究認為，在推動菸害防制法的政策行銷時，民間或非政府力量之參與或許能某種程度強化該法的政策執行力。 其次，有鑑於政策行銷在我國之研究途徑的分歧，本研究將從社會行銷的角度出發，藉此釐清政策行銷的理論內涵及其相關定義。接著，本研究將進一步析論民間政策企業家參與政策行銷活動的可能性及其角色扮演。有別於組織本位的行銷思維，本研究嘗試透過政策企業家創新、行動導向及社會資源整合的能力來建構後續之菸害防制策略。 基本上，在本研究針對台北縣「無菸健康社區推廣計畫」的個案研究中，民間組織參與政策行銷的意願與其領導者及組織特質、目標確實具有相當的關聯。此外，民間政策企業家不僅可以使政策行銷在最低權威的情形下來推動，他對於政策行銷的整體效果也可能帶來正面之影響。

本研究從長時間來觀察台灣香菸稅捐的累退程度變化，並且同時觀察台灣吸菸家庭具備何種特徵，以作為政府相關單位在制定租稅及菸害防制等政策的一個參考。利用行政主計處之「家庭收支調查報告」、台灣省菸酒公賣局之「臺灣地區菸酒事業統計年報」及學者研究等資料來進行累退性衡量，發現自1979年開始至2007年，我國香菸稅累退程度呈現加劇的情形，而各吸菸家庭則呈現出菸草消費支出金額愈高者戶長及家庭成員平均年齡愈低、教育程度較低、以及女性戶長比例下降等特徵。 由此結果可看出我國香菸稅累退程度並未減輕，低所得家庭反而較高所得家庭負擔為重，此外菸草消費支出較高的家庭由於平均教育程度較低，普遍缺乏吸菸會造成健康危害的風險認知，因此衛生醫療主管當局應加強菸害防制教育以利提升國民健康。 / This study observes the regressivity changes of cigarette taxation in Taiwan for long run and the features of smoking families in Taiwan to offer the government and relevant organization a reference in making taxation and tobacco hazards prevention policies. This study uses “Report on the Survey of Family Income and Expenditure in Taiwan Area of Republic of China” from 1979 to 2007, “Taiwan Tobacco and Wine Statistical Yearbook” and other scholars’ contribution to measure the regressivity of cigarette taxation. The results shows the regressivity of cigarette taxation in Taiwan is more and more severe from 1979 to 2007, and the smoking families which have higher tobacco expenditure shows the features of lower average age, lower education level, and lower percentage of female household head. This study concludes that the regressivity of cigarette taxation is more amd more severe, so the tax burden of lower income families is much serious than higher income families, and because of lower education level, the families with higher tobacco expenditure are popularly lack of risk perception which smoking hazards health. Therefore health and medical executive should reinforce tobacco prevention education to promote national health.

世界衛生組織(WHO)於2003年5月第56屆世界衛生大會通過國際「菸草控制框架公約」 (Framework Convention of Tobacco Control, 簡稱FCTC)，在「禁止菸品廣告、促銷及贊助行為」、「跨國合作管制非法走私菸品貿易」、「管制銷售菸品予未成年人及對弱勢族群的保護」、「研議並追究菸商之法律責任」等各方面皆訂有突破性規範。目前全世界已有超過150國家或簽署、或批准遞交世界衛生組織「菸草控制框架公約」。顯見「菸害防制」議題已經是不分國界、不分種族，21世紀全球一致最重要的公共衛生政策之一。 社會行銷在國外行之有年，強調：「以行銷之概念及技巧，來達到某種特定行為之改變，並改善社會」，而運用於健康議題之社會行銷，則是：「將行銷觀念及技巧系統化，以達到促進健康及減少傷害之行為改變目的」。「菸害防制」之推動，即為運用社會行銷所常見之議題及案例。在台灣，董氏基金會為國內最早推動菸害防制宣導的非營利組織，致力於國內菸害防制工作規劃、教育宣導，並促成相關政策法案制訂及監督執法。1997年推動「菸害防制法」立法(歷經十年)；2000年推動菸品開徵「健康福利捐」、執行「衛生署國民健康局菸害申訴服務中心」、舉辦國際「Quit and Win戒菸就贏」比賽等…董氏基金會推動菸害防制二十餘年，因著社會脈動調整推動策略，其寶貴之實務經驗在在與社會行銷理論相結合。 本研究即希望能收集國內外推動健康議題之社會行銷文獻，以社會行銷之概念，配合個案訪談，分析董氏基金會在推動菸害防制議題上之成效，歸納出活動成果及成功因素，以作為相關組織經營及發展策略之參考方向。 / World Health Organization has adopted the Framework Convention of Tobacco Control (FCTC) in the 56th World Health Assembly in May, 2003. The provisions have breakthrough progress on the fields such as “ban on tobacco advising, promotion and sponsorship”, “cross-country control over tobacco smuggling”, “ban on selling of tobacco to minors”, and “legal liability of the tobacco industry”. Up to date, over 150 countries already signed or ratified the FCTC. This shows that tobacco control is already such an important health policy in 21th century beyond country and race. Social marketing has been popular in other countries for years. The idea is “To change a certain collective behavior and improve the society with the concept and techniques of marketing.” To apply “social marketing” to health issues is to “To change behaviors that promote health and eliminate harm with systematized concept and techniques of marketing.” The promotion of tobacco control is a common topic and case that utilize social marketing theory. In Taiwan, John Tung Foundation (JTF) is the first NGO that advocates tobacco control movement. It has been dedicated to the planning, education and promotion of tobacco control in order to enhance police and legislation and the supervision of law enforcement. In 1997, after ten years of efforts, the Tobacco Hazard Prevention Act was finally passed. In 2000, JTF advocated and successfully lead to the levy of the tobacco health and welfare surcharge, executed the “tobacco complaint center sponsored by Bureau of Health Promotion, Department of health” and sponsored the international Quit & Win cessation campaign. In more than two decades, JTF always modifies its tobacco control strategies with the trend of society. Its invaluable experience is again and again accords with the theory of social marketing. The study aims to collect the literature regarding social marketing of health issues. The author uses the concept of social marketing and case interview to analyze the effects of JTF’s advocacy of tobacco control issues. The performance of its campaign and success factors may be a new guideline for the relevant organizations for their operation and strategy development.

菸品廣告規範之研究 中文摘要 就傳播法的角度而言，廣告規範可以說是傳播活動中涉及法律層面最廣，也是最為複雜的議題之一；而「菸品」廣告的存在由於具有相當的爭議性，因此亦稱得上是廣告規範中極具代表性的議題。本論文以菸品廣告規範為中心，藉由此項議題探討的「點」，試圖找出廣告規範的脈絡，進一步勾勒出廣告規範體系的「面」。故本論文處理菸品廣告所牽涉的法律層次，從抽象的國際公約及憲法，到具體的法律、法規命令及行政規則等均包含其中。 論文的架構大致將實務上已發生的菸品廣告案例類型化並釐清問題意識，以我國對菸品廣告規範的法理基礎、實務操作等「在地思考」的探討為「經」；加以對國際規範、外國立法例及實務操作等「國際觀點」的掌握為「緯」，完成本項議題的研究。 研究發現，我國現行菸品廣告規範面臨最大的問題在於菸品間接廣告問題、雜誌廣告規範的漏洞，以及法條競合所引發的適用問題。解決這些問題除了可以藉由國內司法體系的運作外，研究結果顯示修正相關法律規定會是解決問題最好的方式。本論文透過對世界衛生組織制定的全球菸草控制架構公約，以及對歐盟、英國、芬蘭、挪威、美國、加拿大、新加坡、泰國、南韓、日本、澳大利亞、紐西蘭等國家有關菸品廣告規範內容作一整理與分析後，提出全面禁止菸品廣告的規範方式不但不會違背我國憲法對人民基本權利的保護，更是符合未來國際趨勢的見解；而此亦與世界銀行公布的《遏止菸草流行─政府與菸草控制經濟學》報告中，指陳全面禁止菸品廣告為減少菸草需求的非價格措施最佳方式有異曲同工之處。 本論文最後針對現行菸品廣告規範主要的具體法律條文，即菸害防制法第九條及第十條提出修法建議；同時為求執法實務與立法目的一致性，文末並提出執法與實務稽查等多項建議提供我國政府相關單位參考，使本論文確實達到理論與實務的充分結合。 / A Study on the Regulation of Tobacco Advertising Abstract There is no doubt that in the area of communications law the regulation of advertising is one of the most complicated and widespread issues. Among them, tobacco advertising is perhaps the most controversial topic. This dissertation focuses on the regulation of tobacco advertising in Taiwan. This dissertation finds that, in recent years, tobacco companies spent huge sum of money in advertising, resulting in an increase in tobacco consumption. Although according to the Tobacco Hazards Control Law of Taiwan, tobacco advertising is strictly restricted; the phenomenon is that tobacco companies tend to use legal loopholes. This dissertation analyzes the situation and discusses legal problems involved in tobacco advertising. Several issues are emphasized. First is the problem of tobacco indirect advertising. By indirect advertising is meant tobacco company advertises a third product the purpose of which is, however, to promote tobacco products. Secondly, the issue of tobacco advertising in magazines is discussed. The law of Taiwan, due to the 1986 U.S.-Taiwan Trade Agreement, allows a certain amount of tobacco advertising in magazines. Nevertheless, the law does not take into consideration certain circumstances, thereby causing loopholes during enforcement. Last but not least, focus is placed on the application of Tobacco Hazard Control Law. Specifically, the problem of concurrent application -- a unique but not uncommon legal issue in Taiwan’s legal system -- is analyzed. Methodologically, this dissertation adopts the comparative law approach. By examining WHO’s FCTC (Framework Convention on Tobacco Control) and comparing the laws of Taiwan with that of the international convention, the laws of European Union, United Kingdom, Finland, Norway, United States, Canada, Singapore, Thailand, South Korea, Japan, Australia, and New Zealand, the author concludes that a comprehensive ban on tobacco advertising is constitutionally sound and compatible with international trend. Lastly, this dissertation tries to provide solutions to Taiwan’s present legislative and enforcement works. In sum, some of the laws need to be amended; while enforcement works may be improved by introducing a systematic change.

隨著台灣民主的多元深化，各種公共政策議題的倡議也愈趨複雜細膩，而利益團體及非營利組織在政策制訂過程的地位也愈趨重要，但實務上，台灣的非營利組織在政策制訂過程中的地位仍屬模糊，特別是在立法過程中的角色扮演與策略選擇，不僅在理論層次的研究中缺少關懷，在實務操作層次上也未獲一般的非營利組織重視，而使得非營利組織在政策立法過程中的未能適切的發揮其應有的功能。因此，本文希望透過非營利組織理論和議題倡導策略分析的結合，建構一個非營利組織在我國立法運作中倡導議題的基本框架，並作為未來相關非營利組織在立法過程中策略選擇的參考依據。 以非營利組織相關理論和公共政策類型區分，可知相關的組織角色和政策類型種類繁多，但本文限於研究範圍，主要將關注於「價值維護者」非營利組織對於「管制性政策」在立法過程中的倡導策略，並選擇以董氏基金會推動「菸害防制法」修訂作為主要的研究個案。本文並以立法過程作為時間的縱面，切割為程序委員會及院會一讀的「立法形成期」、委員會審查的「法案角力期」和黨團協商及院會二三讀的「折衝妥協期」等三個階段，分別分析董氏基金會在不同階段推動「菸害防制法」修訂所採取的各種議題倡導策略，並透過深度訪談等方式蒐集資料，對其所運用的議題倡導策略的利弊得失進行審視評估。 本文研究發現，董氏基金會在歷時兩年半的菸害防制法修法過程中所採取的議題倡導策略，主要有「道德化『困窘策略』的策略主軸」、「結合媒體訴求的行動策略模式」、「單一而執著的直線操作」等幾項特點，而可能忽略了立法院妥協的議事文化、並對於立法院議事技巧不夠熟悉，從而造成菸害防制法修訂的延宕與議題倡導的挫敗。從董氏基金會推動菸害防制法的案例中，本研究認為，有關國內非營利組織進行議題倡導及立法遊說時，最為缺乏而急迫需要的，就是議題倡導及立法遊說的專業化訓練，因此建議我國非營利組織應該加強對於在立法過程中議題倡導策略的專業訓練，使其能夠更為順暢地完成其議題倡導的使命。 關鍵字：非營利組織、議題倡導、立法過程、董氏基金會、菸害防制法 / As the democracy in Taiwan became more intensely diversified, the promotion of various types of bills on public policies turned more complex and more delicate. In addition, the status of both profit-bearing and non-profit organizations in the process of policy establishment also became rather important. However, practically, the status of Taiwan’s non-profit organizations in the process of policy establishment is still blurred especially in the role-play and the strategy selection in the process of the theories of non-profit organizations, bill promotion and strategy analysis, and to use the research findings as a reference for the relevant non-profit organizations in strategy selections in future legislation processes. It is evident that there are various types of relevant organization roles and policies if the categorization is divided into the relevant theories for non-profit organization and the types of public policies. Due to the limitations on the scope of research, this paper mainly focuses on the promotion strategies of the “value guardian”, the non-profit organizations on “control policies” in the legislation processes. Furthermore, the establishment of the “Tobacco Hazard Prevention and Control Act” promoted by John Tung Foundation, is selected as the main case study for the research. This paper then takes the period of legislation process as the timeline and divides the time into 3 stages: the “legislation formation period” for the Procedural Committee and where the 1st Reading is passed by the Legislation Session; the “bill wresting period” where the bills are examined by the Committees; and the “negotiation period” where negotiations take place between the parties and the organizations and the 2nd and 3rd Readings are passed by the Legislation Session. The 3 different stages are used to analyze the various types of bill promotion strategies employed by John Tung Foundation in the promotion for the establishment of the “Tobacco Hazard Prevention and Control Act” in the different stages, where information are collected through in-depth interviews and other methods to undergo examinations and evaluations on the pros and cons in the bill promotion strategies used. It is found in this research that a number of characteristics including the “strategy focus of a moralized ‘impoverished strategy’”, the “mobile strategy model that combines media appeals”, and the “single and persistent linear operation” are the main bill promotion strategies taken by John Tung Foundation in the promotion for the establishment of the “Tobacco Hazard Prevention and Control Act” that took 2.5 years to get through. The bill discussion culture and the compromise of the Legislative Yuan may have been neglected and the unfamiliarity with bill discussion techniques in the Legislative Yuan may have caused the delay and the failure of the bill promotion in the establishment of the Tobacco Hazard Prevention and Control Act. This research feels that from the example of John Tung Foundation’s promotion of the Tobacco Hazard Prevention and Control Act, the most lacking and the most urgently required for local non-profit organizations in bill promotion and legislation persuasion would be the professional training for bill promotion and legislation persuasion. It is therefore recommended that the local non-profit organizations should strengthen their professional training for bill promotion strategies in the legislation processes in order for them to smoothly complete the mission in bill promotion. Keywords: Non-profit Organizations, Bill Promotion, Legislation Processes, John Tung Foundation, Tobacco Hazard Prevention and Control Act.