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標題: | 戰後臺灣糧食體制的形構及其變革(1950-1974年) The construction and the reformation of Taiwan's food regime in post-war period(1950-1974) |
作者: | Hsien-Wei Tseng 曾獻緯 |
指導教授: | 呂紹理 |
關鍵字: | 糧食體制,冷戰,獨立國民經濟體,肥料換穀,糧食局, food system,cold war,independent national economies,fertilizer-rice bartering system,the Grain Bureau, |
出版年 : | 2020 |
學位: | 博士 |
摘要: | 1949年底,中華民國政府撤退來臺後,面對龐大人口增加的糧食需求,以及外匯短缺的問題;同時臺灣捲入1950年代以後形成的國際糧食體制,政府因應國內的統治需求,以及國際市場變動,賦予糧食多重任務,既是政府重要穩定民心的資源,也是重要的財政工具,更是重要的外交資源,以滿足國家建構需求。本文運用政府檔案、重要人物檔案、官方出版品、調查報告、日記史料、口述歷史等材料,探討在不同歷史階段過程,「獨立經濟體的財政運作」、「多元行動者的互動」、「國內外市場的運作」等三重結構因素如何影響戰後臺灣糧食體制之形成與轉型,並且進一步詮釋這種糧食體制的運作對糧食局的權力結構與農業發展的何種影響。
戰後臺灣糧食體制經歷「戰時糧食體制的承接與轉換(1945-1949年)」、「汲取型糧食體制的摸索與確立(1950-1953年)」、「汲取型糧食體制的落實與定型(1954-1968年)」、「汲取型糧食體制的崩解與轉型(1960s-1974年)」等四個階段的變動,糧食體制在這些變動之中受到許多客觀因素的制約,從「汲取型」轉型為「補貼型」,使得統治者必須不斷摸索與調整。而統治者在「獨立國民經濟體的財政運作」、「不同行政機構與利益關係者的互動」、「冷戰局勢下美國的影響」等結構性因素影響之下,不斷改造既有糧食制度,發展出新的糧食制度,才得以確立一套完整的糧食管理制度,並朝不同方向偏移與轉化,以調適政治經濟環境的變遷。 隨著糧食體制的運作,糧食局形塑出其做為國營糧商的特性,獨佔肥料配銷與臺米出口,得以自行決定肥料換穀的比率,卻將農民排除於肥料配銷、出口活動之外,切斷肥料換穀比率與臺米出口價格、肥料進口價格的關聯,變成純粹的耕農,使得農民無法分享臺米出口所帶來的豐厚利潤。與此同時,糧食局不僅透過肥料換穀的機會,運用肥料換穀比率的手段,將軍糧損失轉嫁給農民,更在臺米高價輸出時壟斷利潤。正因如此,糧食局每年獲得不少的盈餘,不僅用以彌補因支持軍事性財政結構所造成的負擔,並能藉此累積可觀的資產。 另外,由於臺灣農業受限於耕地面積小,以小農型態為主,雖然擁有優良的耕種技術,使得單位面積產量提高,但是生產成本卻較高。自日治末期便已顯現的侷限性,卻因戰後國內政經環境與國際局勢所帶動起的糧食體制,讓臺米仍有市場需求,掩飾了臺米在國際市場上競爭力不足的事實。然而,國內外市場需求降低,造成生產過剩時,統治者既要鞏固統治基礎,還必須保障農民收益,維持糧食自給率,多重因素促使政府推行保價收購,卻造成農民對補貼政策之依賴,降低農民彈性對應市場變化的能力。 At the end of 1949, the Republic of China faced the increasing food demand of the huge population and the problem of foreign exchange shortage after they withdrew to Taiwan. In the same time, Taiwan was involved in the international food system which formed in the 1950s. The government endow food multiple tasks to response the domestic ruling needs and changes in the international market. Food is not only an important resource for the government to stabilize people, but also an important financial tool and diplomatic resource to meet the needs of the country's construction. This article uses government documents, personal files, official publications, investigation reports, diary, and oral material to explore how the three structural factors, which include 'financial operation of independent economies', 'interaction of multiple actors' , and 'the operation of the domestic and international market', influenced the formation and transformation of Taiwan's food regime in the post-war period, and further explained how the operation of the system would affect the power structure and agricultural development of the Grain Bureau. The Taiwan’s food regime in the post-war period experienced four stages: 'the inheritance and transformation of the wartime food regime (1945-1949)', 'the exploration and establishment of the extractive food regime (1950-1953)', 'the implementation and regularization of the extractive food regime (1954-1968)', and 'the disintegration and transformation of the extractive food regime (1960s-1974)'. Because of the transformed of the food regime from the 'extractive type' to 'subsidy type' was constrained by many objective factors, rulers need to explore and adjust constantly to adapt the situation. The rulers could create a complete set of food management systems to face the changes of the political and economic situation only if they reform and develop the existing food system constantly and try to establish a new one under the influence of structural factors such as 'financial operation of independent national economies', 'interaction between different administrative agencies and stakeholders', and 'influence of the United States under the Cold War era.' Under the operation of the food regime, the Grain Bureau has shown the characteristics of state-owned grain merchants. The Grain Bureau not only monopolizes the exclusive right of fertilizers selling, but also the export of Taiwanese rice. Besides, they determine the ratio of the fertilizer-rice bartering. Cutting off the relationship between the ratio of fertilizer-rice bartering and the export price of Taiwanese rice and the import price of fertilizers caused farmers unable to share the huge profits brought by the export of Taiwanese rice. At the same time, the Grain Bureau manipulated the ratio in the fertilizer-rice bartering system to pass on the loss of military grain to farmers, and even monopolized profits when the high price of rice was exported. For this reason, the Grain Bureau obtains a lot of surplus every year, not only to make up for the burden of supporting the military financial structure, but also to accumulate considerable assets. Due to the small area of cultivated land, Taiwan’s agriculture is dominated by small-scale agricultural mode. Although it has excellent cultivation techniques, which has increased the output per unit area, the production cost is higher. The limitations of the mode have appeared at the late Japanese rule period, but the food regime driven by the domestic and international situation after the war has made Taiwanese rice still have market demand, masking the fact that commodities are not competitive enough in the international market. When the domestic and international market demand is reduced, resulting in overproduction, the rulers must not only consolidate the foundation of the rule, but also guarantee the farmers' income and maintain the food self-sufficiency rate. These factors have led the government to implement the rice price support program, but it also caused farmers to rely on subsidy policies, reducing farmers’ ability to respond to market changes. |
URI: | http://tdr.lib.ntu.edu.tw/jspui/handle/123456789/62371 |
DOI: | 10.6342/NTU202001003 |
全文授權: | 有償授權 |
顯示於系所單位: | 歷史學系 |
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