風險管理的基礎設施化政治：以大南科地區為例

Abstract

「從蔗田，變矽田」是描繪南科臺南園區發展時常見的典型腳本，其不只顯現出地景型態上的戲劇性轉變，更隱喻著產值的高度差異。然而，在此類敘事中，園區設置與維運所依賴的各種設施，以及其在地方所引發的連鎖性影響與抗爭卻往往遭到忽略。有鑑於此，本研究橋接風險管理及晚近人文社會學界中基礎設施研究之觀點，提出「風險管理的基礎設施化政治（Infrastructural Politics of Risk Management）」之概念作為分析框架，藉其釐清支持園區需求與運作穩定性之基礎設施，對地方構成影響的樣態及理路，並從中反思可能的修正路徑。 在文中，本研究首先回顧「新市基地」仰賴之基礎設施（土地、水電、交通系統）的形成過程，並進一步將這些建設置於新設科學園區的脈絡下加以檢視，再透過可行性評估報告及歷史新聞之分析，主張基礎設施之於園區運作的穩定性，是猶如「風險管理」般的存在，亦即「風險管理的基礎設施化」。 在此基礎上，本研究進一步引入「未完成性（incompleteness）」之觀點，以探討園區的風險管理如何因為基礎設施的動態（規劃、施工、維護、擴張等狀態），對地方構成不同型態的連鎖性影響。同時，為了更進一步探討這些影響的形成理路，本研究由「基礎設施化政治」之概念切入，以溪埔中路之新闢與拓寬為例，說明基礎設施如何因其中介之風險與資源分配不均，對他者帶來衝擊，並間接解釋園區風險管理所面臨的不確定性（公共關係危機）何以產生。 最後，為了更加完整地呈現園區風險管理對於地方的影響，並從中探詢修正的可能性。本研究有別於個別化立場下的風險管理研究觀點，進一步將不確定性的處理機制納入分析範圍。具體而言，本文分別探討了回饋金機制、開發單位自辦之環評前溝通座談，以及臺南市政府投入公私協力之過程。研究指出，在不確定性處理機制設計不當的狀況下，不公平的基礎設施化政治恐將被隱蔽、延續甚至加劇，因此，未來在關鍵建設保護（Critical Infrastructures Protection, CIP）的策劃階段，應更加注重「人群異質性」之處理，以及「協力網絡」之建構，為不公平的基礎設施化政治開創揭露、討論或修正之機會，以避免特定群體在園區風險管理過程中成為損失者。

‘The transformation from sugarcane fields to silicon fields’ is a common narrative in describing the development of the Tainan Science Park (TSP). This narrative not only highlights the dramatic transformation of the landscape but also implies the stark contrast in economic value. However, such accounts often overlook the infrastructures on which the park’s establishment and operation depend, as well as the chain effects and conflicts they generate at the local level. In response, this study bridges perspectives from risk management and recent scholarship on infrastructure in the humanities and social sciences, and proposes the concept of the Infrastructural Politics of Risk Management as an analytical framework. This framework seeks to clarify how infrastructures that sustain the demands and stability of the science park affect local communities, and to reflect on possible paths of adjustment. Accordingly, this study first reviews the formation of infrastructures underpinning the “Xinshi site”—including land, water and electricity, and transportation systems—and situates their development within the broader context of establishing the science park. By analyzing feasibility reports and historical news sources, the study argues that these infrastructures functioned as a form of “risk management,” namely, the infrastructurization of risk management. Building on this, the study introduces the notion of incompleteness to explore how risk management in the park, shaped by the dynamic states of infrastructure (planning, construction, maintenance, and expansion), produces diverse chain effects on local communities. To further analyze the logic of these external effects, the study employs the concept of infrastructural politics through the case of the expansion of Xipu Zhong Road. This example illustrates how infrastructures, through the mediation of risks and unequal resource distribution, can impose burdens on certain groups, thereby indirectly explaining the uncertainties (public relations crises) embedded in the park’s risk management. Finally, to more fully present the park’s impact on local communities and identify possibilities for correction, this study departs from individualized perspectives on risk management by incorporating mechanisms for dealing with uncertainty into its analysis. Specifically, it examines the compensation fund system, developer-led pre-EIA consultation meetings, and the Tainan City Government’s involvement in public–private partnerships. The findings suggest that, when poorly designed, these mechanisms risk obscuring, perpetuating, or even exacerbating the inequities of infrastructural politics. Therefore, in future planning of Critical Infrastructure Protection (CIP), greater attention must be paid to addressing social heterogeneity and fostering collaborative networks, in order to create opportunities for revealing, negotiating, and correcting injustices, and to prevent specific groups from becoming the unintended losers of the park’s risk management process.