台灣跨域治理平台運作之研究: 以基隆市港再生標竿計畫為例(2016-2022)

Abstract

本研究從跨域治理與多層次治理的角度出發，探討基隆市政府在2016年至2022年間推動的「基隆市港再生標竿計畫」，採用「市港平台」、「景觀平台」及「大基隆歷史場景平台」三個平台同時運作的跨域治理模式，整合來自不同政府層級和部門的資源，並對地方政府與中央政府間的關係產生影響，引發本文的研 究動機。透過文獻檢閱、次級資料分析和深度訪談，探討本研究的主要研究問題:基隆市港發展的脈絡與跨域治理的必要性，及基隆市如何在資源有限等困境的前提之下，如何打破本位主義，還有如何透過三個不同卻具高度關聯性的平台，建立跨域合作平台的治理典範，又是如何在「市港再生標竿計畫」中發揮效果。

研究結果發現，在這三個平台中，藉由面對面對話和平台間的頻繁交流互動，有效減少意見表達的資訊落差;加上以治理為中心取代以政府為中心的政策整合，能克服多層次體制運作的協調難度;再者，協調時所產生的交易成本，透過主要計畫管理者的調控而能有效被降低，增加平台參與者與相關利益者的合作意願，而這也與領導者的治理風格與方法有關;此外，透過結網者促進政府部門、非政府組織和其他利益相關者間的聯繫和合作，在此個案中被視為提高跨域治理效果的關鍵因素;最後，在不同的組織當中，本位主義雖未完全消失，但參與者努力克制和避免組織界線劃分，透過共識建立和密集的會議交流，建立合作默契的工作氛圍，促進溝通、協商和協作的順利進行。

This study explores the " Keelung City-Harbour Regeneration Pilot Plan " implemented by the Keelung City Government from 2016 to 2022, examining it from the perspectives of cross-boundary governance and multi-level governance. The project utilized three operational platforms— the "City-Port Platform," the "Landscape Platform," and the "Greater Keelung Historical Scene Platform"—to integrate resources from different governmental levels and departments, thereby influencing the relationship between local and central governments. This forms the research motivation for this paper. Through literature review, secondary data analysis, and in-depth interviews, this study explores the primary research questions: the development context of Keelung Port and the necessity of cross-boundary governance, how Keelung City overcame the constraints of limited resources and broke through parochialism, how it established a governance paradigm for cross-boundary cooperation platforms through three distinct yet highly interrelated platforms, and how these platforms functioned effectively within the " Keelung City-Harbour Regeneration Pilot Plan."

The research findings indicate that among the three platforms, face-to-face dialogues and inter-platform interactions effectively reduced information asymmetry in expressing opinions. Additionally, a governance-centric approach replaced a government-centric one in policy integration, overcoming the coordination difficulties inherent in multi-level systems. Moreover, the transaction costs incurred during coordination were effectively reduced through the regulation of primary project managers, thereby increasing the willingness of platform participants and stakeholders to cooperate. This was also related to the leadership style and methods of the leaders. Furthermore, networkers facilitated connections and cooperation among government departments, non-governmental organizations, and other stakeholders, which was identified as a key factor in enhancing cross-boundary governance effectiveness in this case. Finally, although parochialism had not been completely eliminated among different organizations, participants strived to restrain and avoid organizational boundary divisions. Through consensus-building and intensive meeting interactions, they established a collaborative working atmosphere, thereby promoting smooth communication, negotiation, and cooperation.