都市空中纜車建置之政策網絡行動者互動分析：成長機器之觀點

Abstract

本研究以北投纜車政策作為都市空中纜車政策的個案，探討北投纜車政策過程所展現的網絡行動者間的互動過程和成長機器的關係。從政策網絡出發區分北投纜車政策中網絡行動者間的立場與角色。之後，探討網絡行動者間的互動策略以及是否存有成長機器所衍生的理論觀點存在。站在成長機器的分析角度，重新架構台北市都市政治與纜車政策發展歷程，藉以從中論證北投纜車政策當中所展現之政治結構關係，並呈現出不同於西方以及國內研究中所探討的成長機器。 從這樣的觀點出發來分析北投纜車政策，本研究有三個主要的研究發現。 一、北投纜車政策網絡，行動者間呈現網絡互動僵持的狀況，而原因在於成長機器的運作所主導產生。 二、本個案的成長結盟可以分為兩階段，在BOT之前是由地方上溫泉業者與政客為主；而在BOT階段以後則是由外來財團與政府部門的結盟產生。無論是何種型態的結盟方式，地方上的土地利益並非主要型塑成長聯盟的核心，不可忽略的是來自其他地區的土地利益與工程利益的影響性。 三、即使台灣從威權轉向民主，在本個案中，成長機器仍是由行政部門佔有絕對的主導優勢，與西方理論相比，成長機器發展仍舊不夠充分，須待進一步的反省與討論。

This study investigates the interaction network of actors in Beitou Line Aerial Gondola Lift Project from growth machine perspective. Based on the theory of policy network, distinction between different tiers of actors and the role they played is addressed. Strategies of pro-growth and anti-growth coalitions are discoursed and the politics and policy formulation process among coalitions are explored. I analyze gondola lift development and the conflicts that it may provoke in terms of key categories: economic context, actors, dynamics, interests, ideology, and community democracy. Throughout the analysis I critically engage the growth machine perspective and suggest how it may be modified to better account for the peculiarities and politics of gondola lift project in the Beitou case. The key findings are described below. 1.Growth machine coalition directs the policy network of Beitou Line Aerial Gondola Lift Project. 2.Whatever the type of alliance, the interests of local land-use development is not the core issue of coalition but the construction and development of luxury recreational building is. 3.Even though Taiwan is changing from an authoritarian regime to a democratic one, as shown in the case study, the power from bureaucracy and administration leads the operation of growth machine. Compared with the growth machine designed in developed world, it is immature in Taiwan.