當代公共政策問題幾乎都是所謂的「棘手問題」，由於大家對問題是否存在沒有共識，即使有部分共識認為問題存在，但對問題的本質仍無一致的看法，這些棘 手問題使問題分析在政策過程的早期階段即遭遇困難，從而凸顯政策問題本質與認 定的重要性。本文嘗試從政策過程的問題認定階段，梳理棘手問題的解決之道，除 就政策問題相關理論進行文獻回顧，以剖析我國觀光博弈產業政策的歷史脈絡與法制規範外，並以我國觀光博弈產業的2個公民投票個案為例，進行深度訪談與分析，最後，提出具體研究發現與研究建議。總之，作者希望本研究在理論上，能增益棘手問題、政策問題界定的理論、政府政策態度及政策弔詭等相關知識之累積；同時在實務上，能有助於未來我國整體觀光博弈產業政策的發展。

Contemporary public policy problems tend to be what may be called “wicked problems”. Even there may be general awareness of the existence of a problem, it is often hard to reach consensus on the nature of the problem. Such wicked problems make it more difficult to analyze the problem at the early stage of the policy process, which highlights the importance of recognizing and defining the nature of policy problems. In this article, we explore solutions for wicked problems in the stage of problem identification in the policy process. To do this, we first conduct a literature review on relevant theories, with a focus on the historical contexts and regulations of tourism and gambling industry policy in Taiwan. We then discuss in detail two cases of referendum about tourism and gambling industry policy, using in-depth interviews and analysis on the pros and cons of setting up tourist casinos. Finally, we offer research findings and advices for future studies. We also hope that this study will offer contributions to the theories of wicked problems and policy problem definition, attitudes of the government, and policy paradox. In the meantime, we hope that this article will provide practical advices on the development of overall tourism and gambling industry policy in Taiwan.