框架公約聯盟與菸草控制框架公約：跨國倡議網絡的個案分析

Framework Convention Alliance and the Framework Convention on Tobacco Control : A Transnational Advocacy Network Case Study

自1990年代以來，菸草疾病對人類健康已造成重大的威脅，其影響亦從已發展國家擴散到發展中國家。若無法有效採取策略的話，估計在2030年會造成每年約一千萬人的死亡。因此世界衛生組織開始思考從一個全球健康規範的角度，來制訂「菸草控制框架公約」。由於世界衛生組織的成員國都是主權國家，故在1999年和2003年之間的公約談判過程中，非政府組織不但與各國政府代表進行互動，且亦試圖在國家的層面之上，建立一個全球菸草控制規範。非政府組織為了強化集體的力量，乃成立了「框架公約聯盟」，建構了跨國倡議網絡，試圖對各國政府代表、非政府組織代表和跨國菸草企業產生影響力。為了要解釋跨國倡議網絡與「菸草控制框架公約」獲得通過之間的關聯性，本文首先將對跨國倡議網絡運作的觀察，區分為五個不同的層面，即議題框架的形成與確立、「框架公約聯盟」的建立、議題設定與談判監督、專業資訊的掌握與傳送，以及策略的擬訂與執行等。其次，在每個不同的層面上，本文亦評估了非政府組織如何實際運用與發揮其影響力。

Since the 1990s, tobacco-related diseases have posed a tremendous threat to human health. The impact of such diseases has also proliferated from developed countries to developing countries. It is estimated that tobacco use could cause 10 million deaths by 2030, if no actions are taken. Because globalization ha s inevitably weakened the capabilities of individual countries to control tobacco consumption, the World Health Organization (WHO) has considered formulating the Framework Convention on Tobacco Control (FCTC) from the perspective of global health regulation. With FCTC as a case study, the article explores the unique interactions between states and non-governmental organizations (NGOs). In the process of negotiating the adoption of the FCTC from 1999 to 2003, both local and international NGOs interacted with governmental representatives from WHO member countries. Furthermore, NGOs were also pursuing global health regulations beyond their respective countries. In order to enhance collective power, many NGOs decided to coordinate their activities, forming the Framework Convention Alliance (FCA) on the basis of transnational advocacy networking. The alliance aimed to make an influence on the stances of governmental representatives and transnational tobacco enterprises, for the final approval of the FCTC. To explain the effectiveness of the transnational advocacy network, this article analyzes this process from five viewpoints: 1) issue-framing; 2) establishment of the FCA; 3) agenda setting and monitoring; 4) possession and provision of professional information; and 5) determination and execution of strategies. From each dimension, the article then assesses how these NGOs in the advocacy network concretely exert their influence.