碳税财政支付移转政策对台湾宏观经济影响的模拟研究
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摘要
由于人为排放的二氧化碳等温室气体,引起了全球暖化,威胁到了人类的生存,拯救人类文明迫切需要一种新经济方式的革命。以低能耗、低污染、低排放为基础的低碳经济方式于焉产生。节能减碳的措施必会增加许多产业的生产成本,低碳政策的影响也随着不同的产业而有所差别。在同样的减碳目标之下,不同的政策手段也可能产生不同的减碳成本、创造不同的减碳商机。虽然农牧及林业部门非温室气体的主要排放者,但上述总体能源与产业政策的调整,仍将间接影响到农牧及林业部门。例如,为了积极发展再生能源等绿色产业,势必加强有机废弃物之再利用、发展生质能源、风力发电等,这些均属土地耗用型之型态,未来农工争地之情形将更明显。此外,大规模推动农牧及林业生产用地用于造林,减少国内农产供给的作法,除了可以拉抬农牧及林业产品之市场价格外,如在国内农工部门间建立适当碳排放权交易制度,将造林之外部效益及农牧及林业部门之真正价值反映出来,农牧及林业产品产销可逐步回归市场机制,引导农牧及林业转型为市场为考量、消费者导向之经营型态,有效提高农牧及林业经营效率及国际竞争力,促进农牧及林业之永续发展。
     温室效应所产生的经济社会的外部效应,造成经济效率的损失,进而导致社会福利的损失。外部效应是市场失灵的表现,根据公共产品理论,政府需要运用征税、补贴等财政支出手段对经济运行进行干预。合理的征税与转移支付制度可以使国家的重点建设、基础设施、教育、卫生、环境保护等项目资金得到保障,还可以给予受自然条件影响大、盈利低或风险程度高的产业一定的专项补贴,支持和促进该产业的生产发展。而导入绿色租税制度的收革,其意义在于将环境考量整合于税制体系的设计中。在税收中立的前提下,透过课征环境税(如碳税)取得收入,并降低其它具有扭曲性质的租税,以实现兼收环保和税制的双重红利效果。依据「木桶理论」,将资源投入到农牧及林业部门的发展,以避免「马太效应」所产生的资源配置不均,造成的经济与社会发展的不平衡,抑制整体经济的发展水平和发展速度。碳税收入用以补贴农牧及林业部门,预期对于台湾整体经济环境与温室气体的减量,会达到最佳的效果。
     本研究假设为(1)碳税能减少能源消耗,调整产业结构;(2)碳税税收补贴至农牧及林业部门能达到经济增长及CO2减量最大效果;(3)绿色税制双重红利存在。最后,根据台湾环保署「温室气体减量法」的推动进度,准备开征碳税政策方向。在减少对经济活动的干扰,维持税收中立的原则下,参考前人研究环境税制双重红利的结论,设计出各种不同的抵扣或补贴版本,模拟计算出征收碳税收入用以抵销货物税、汽燃费、个人所得税、营业利益所得税等扭曲性租税,加上作为财政转移支付补贴至农牧及林业部门,对台湾宏观经济成长、就业、物价与产业发展,以及C02的减量效果的综合评价,找出最适合台湾温室气体减量的政策。
     本论文在前人的研究基础上,以台湾社经资料为基础,模拟台湾课征碳税,并将碳税以财政转移支付政策补贴至农牧及林业部门,及加入绿色税制精神的配套条件,对台湾宏观经济、产业结构,以及C02的减量效果的影响。研究方法系以一般均衡模型(CGE),依据台湾产业结构的特性,利用2006年产业关联表与国民所得帐等编制报告的次级数据,推算碳税政策对于产业最终需求结构变动,对个别产出产生影响,据以衡量所造成宏观经济及产业的影响程度。本研究的创新之处在于:建立了一个基于32部门的台湾碳税及其财政转移支付政策分析的CGE模型,针对课征碳税、财政收入、补贴与转移支付设置出四种情境进行模拟分析,讨论各种本碳税财政转移支付模拟方案对整体经济及产业可能造成的冲击,给予台湾环保署设计课征一个新的税制并做好财政转移支付提出了定量的依据。
     研究结果确认了(1)碳税能减少能源消耗,调整产业结构;(2)碳税税收补贴至农牧及林业部门能达到经济增长及CO2减量最大效果;(3)绿色税制双重红利存在等3项研究假设。模拟结果显示:不支持补贴农牧及林业部门的CO2减量效果最差;全部补贴农牧及林业部门C02减量效果最好,两者有两倍以上的差距。综合考虑后,得出碳税抵扣货物税后,余额10%补贴农牧及林业部门,90%支付个人所得税(即方案七)是为最佳的碳税政策。碳税单独支付企业营业利益所得税或燃料税,虽然仍具双重红利,但若与货物税或个人所得税搭配抵扣,反而产生了抑制。
     本研究讨论各式碳税及农牧及林业部门财政转移支付政策对整体经济及各部门可能造成的冲击,并找出课征一个新的税制并做好补贴,使经济效果与CO2减量达到最佳的结果。藉由本研究可以发现农牧及林业补贴在10%-20%是为最佳方案,农牧及林业补贴太多(大于20%)或太少(小于10%),皆会造成国内生产总值(GDP)与其它产业产出的负面影响,这是本研究最大的贡献。
Due to anthropogenic emissions of carbon dioxide and other greenhouse gases, causing global warming, a threat to the survival of mankind, to save human civilization is an urgent need for a new economic revolution. Low-carbon economy based on low energy consumption, low pollution, low emission at the produce stand. Carbon reduction measures will definitely increase the production costs of many industries, the impact of low-carbon policies vary with different industries. Same carbon reduction target under the different policy instruments may produce different carbon reduction costs, create different carbon reduction opportunities. Although agriculture and animal husbandry and forestry sector non-greenhouse gas emissions, but the overall energy and industrial policy adjustments, will continue to indirectly affect agriculture and animal husbandry, and forestry sectors. For example, in order to actively develop green industries such as renewable energy, it is bound to strengthen the re-use of organic waste, development of biomass energy, wind power, etc., these are land consumption patterns and future agricultural and industrial struggle for land will become even more obvious. In addition, a large scale to promote agriculture and animal husbandry and forestry production land for afforestation, reduce the supply of domestic agricultural production practices, in addition to lift the market price of agriculture and animal husbandry and forestry products, particularly, as in the domestic agro-industrial sector to establish appropriate carbon emissions trading system, to reflect the true value of the afforestation of external benefits agriculture and animal husbandry, and forestry sector, the production and marketing of agriculture and animal husbandry and forestry products can gradually return to the market mechanism, to guide farmers and forestry transition to market considerations, consumer-oriented operating style, effective agriculture and animal husbandry and forestry operational efficiency and international competitiveness, and to promote the sustainable development of agriculture and animal husbandry and forestry.
     Greenhouse effect produced by external economic and social effects, resulting in a loss of economic efficiency, which led to the loss of social welfare. External effects the performance of market failure, according to the theory of public goods, the government needs to use taxation, subsidies and other means of financial expenditure to intervene in the economic operation. Reasonable taxation and transfer payment system can focus on building the country's infrastructure, education, health, environmental protection, and other project funds are protected, you can also give affected by natural conditions, industry profitability is low or a high degree of risk certain special subsidies, support and promote the development of the industrial production. Closing leather to import green tax system, its significance lies in the integration of environmental consideration in the design of the tax system. Tax neutrality premise, through the imposition of environmental taxes (such as a carbon tax) income, and lower have distorted the nature of the tax, in order to achieve integrated environmental and double bonus effect of the tax system. Based on the "bucket theory", the resources put into the development of agriculture and animal husbandry and forestry sector, in order to avoid the "Matthew effect" arising from the uneven allocation of resources, caused by the imbalance of economic and social development, to suppress the level of development of the economy as a whole and the pace of development. The carbon tax revenue to subsidize agriculture and animal husbandry and forestry sector is expected to achieve the best results for Taiwan's overall economic environment and greenhouse gas reduction.
     This study assumes (1) a carbon tax to reduce energy consumption, adjusting the industrial structure;(2) carbon tax tax subsidies to agriculture and animal husbandry and forestry departments to achieve the maximum effect of the economic growth and CO2reduction;(3) green tax double dividend exists. Finally, according to the Taiwan EPA Greenhouse Gas Reduction Act "to promote the progress, it is ready to introduce a carbon tax policy direction. Reduce interference in economic activities, and to maintain the principle of tax neutrality, the the double dividend conclusion of reference of previous studies of environmental taxation, design a variety of deductible or subsidies version simulation used to offset a levy carbon tax into goods tax, gasoline and fuel consumption, personal income tax, business interests, income tax distortionary tax, and as a financial payment migrating subsidies to agriculture and animal husbandry and forestry sector, Taiwan's overall economic growth, employment, prices, and industrial development, as well as the reduction of CO2comprehensive evaluation of the effect, to identify the most suitable for the reduction of greenhouse gas policy.
     The papers in previous studies based on socioeconomic information to Taiwan-based simulation of Taiwan's carbon tax and the carbon tax is a transfer of financial payment policy of subsidies to agriculture and animal husbandry and forestry sectors, and join the spirit of green tax supporting conditions, the impact of Taiwan's overall economic and industrial structure, as well as CO2reduction effect. The research method is a general equilibrium model (CGE), based on the characteristics of Taiwan's industrial structure, the use of the preparation of the report of the2006industry association table with the national income accounts and other secondary data projected carbon tax policy for the industry, the final changes in the structure of demand, individual products the impact to measure the impact of general economic and industry.The innovation of this study is to:establish a migration policy analysis based on32sector carbon tax and financial payment CGE model, set out four scenarios for the carbon tax, fiscal revenue, subsidies and payment transfersimulation analysis, discussion of a variety of carbon tax fiscal payment the migration simulation scenarios possible impact on the overall economy and the industry, the EPD design levying a new tax system and make the transfer of financial payment quantitative basis.
     The results confirm (1) carbon tax to reduce energy consumption, adjusting the industrial structure;(2) carbon tax tax subsidies to agriculture and animal husbandry and forestry departments to achieve the maximum effect of the economic growth and CO2reduction;(3) green tax double dividend exists wait three hypotheses. The simulation results show that:the worst does not support CO2reduction effect of subsidies to agriculture and animal husbandry and forestry sector; CO2reduction effect of all subsidies for agriculture and animal husbandry and forestry departments best, more than twice the gap between the two. The comprehensive consideration obtained the carbon tax deductible goods after tax, the balance of10%of the subsidies to agriculture and animal husbandry and forestry sector,90%to pay personal income tax (ie Option VII) for the best carbon tax policy. Carbon tax is a separate income tax or fuel tax, payment of business interests to remain in double dividend, but if the excise tax or personal income tax with deductions, but suppressed.
     In this study, discussion kinds of carbon tax and the transfer of agriculture and animal husbandry and forestry sector financial payment policy may impact on the overall economy and departments, and find out that the imposition of a new tax system and do a good job subsidies, the economic effect of the CO2reduction to achieve the best results. Agriculture and animal husbandry and forestry subsidies in the10%to20%for the best programs, agriculture and animal husbandry, and forestry subsidies too much (more than20%) or too little (less than10%) can be found by this study are cause domestic production total value of the negative impact of the (GDP) and other industry output, which is the greatest contribution of this study.
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    [1]http://ec.europa.eu/environment/climat/climate_action.htm
    [2]台湾行政院主计处信息网(http://www.dgbas.gov.tw/)。
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    [4]台湾财政部信息网(http://www.mof.gov.tw/)
    [5]台湾行政院环保署信息网(http://www.epa.gov.tw/)

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