基隆市發展觀光產業之研究―以地方治理觀點分析

Abstract

基隆市目前正面臨以下幾個發展危機，以公路而言，2006年北宜高雪隧開通，臺北、宜蘭當日可來回，造成以往濱海公路及東北角海岸的店家生意直落；以鐵路而言，北宜鐵路在2006年時環境評估未通過而擱置，但2009年時，鐵改局重啟北宜鐵路先期規劃及可行性研究，並獲交通部同意列為最優先方案；在海運方面，2008年台北港的啟用，使基隆港未來營運發展的情勢更加嚴峻；另外，長期以來，全台各縣市由於中央未能有效劃分權限與妥善分配資源，產生直轄市與一般縣市的發展不均，在2010年12月25日行政區域劃分為五直轄市十七縣市後，2014年12月25日桃園縣亦將改制為直轄市，行政區域又要變成六直轄市十六縣市，以當前財政收支劃分的情況而言，一般縣市的資源分配將更為稀少。而基隆市在面對上述五大危機的情況下，再加上地理條件腹地狹小、山坡地太多及早期都市發展的限制，土地難以開發，連帶使得基隆的都市建設發展遲緩，並嚴重影響了基隆的城市競爭力，且近年來中央對基隆港的投資減少，使得基隆市的港埠設施建設落後，敵不過鄰近地區大型化港口的競爭，基隆市有逐漸被邊緣化的傾向。 依據遠見雜誌在1996年9月及2004年5月，分別對臺灣地區25個縣市首長所作的調查顯示，1996年時只有宜蘭、南投、屏東、臺東四個縣以觀光來定位地方發展策略，2004年則已有超過半數縣市是以觀光做為發展的定位或視為最具商機的產業，可見推展觀光旅遊產業提升地方經濟是各縣市首長所認同。本文希望藉由地方治理的理論結合地方資源與行銷方式，達到基隆市發展觀光產業之目標，將基隆地區水域遊憩資源加以整理，規劃出可行的活動方案類型，發展海洋觀光行銷，並利用自身的環境資源、地理優勢等條件，做整合式的連結，達成「港市合作、港市共榮」的理念。

Keelung is currently facing several crises of development. For the land transportation, the opening of Hsueh-shan Tunnel in 2006 has dramatically reduced the time of travel back and forth between Taipei and Ilan to less than one. This has caused a sharp decline of business for the vendors in Keelung’s Coastal Highway and NortheastCoast areas. The Taipei-Ilan railway project, pending due to its failure to pass the environmental assessment in 2006, was given the first priority by the Ministry of Transportation and Communication in 2009 as the Railway Reconstruction Bureau restarted the advance planning and feasibility studies of the railway route. For the marine transportation, the operation of the TaipeiHarbor in 2008 has compounded the challenges for the future operation and development of the KeelungHarbor. Moreover, for a long time, the central government has ineffectively divided and allocated resources to the local governments at the city and county level and this has resulted in the disproportionate development of the municipalities and general counties and cities. On December 25, 2010, the island was divided into five administrative regions and seventeen cities and counties. After December 25, 2014, TaoyuanCounty will also be upgraded to a municipality status and the composition of administrative regions will be become a six municipalities and sixteen counties/cities. In terms of the current fiscal revenues and allocations, the regular counties/cities are expected to receive even less resources. Apart from the five major challenges faced by Keelung, the city finds it difficult to develop the land as it has inherited small and narrow hinterland and too many hillsides and restricted by early urban development and this has led to the slow urban development of this harbor town and seriously undermined its competitiveness with other cities and municipalities. The reduced funding to the KeelungHarbor by the central government in recent years has rendered the harbor facilities obsolete and thus no match for the major harbors in the neighboring areas. Keelung has shown a tendency of being gradually marginalized. According to the surveys conducted by the Vision magazine among the leaders of 25 counties and cities in Taiwan in September 1996 and May 2004 , in 1996 only Ilan, Nantou , Pingtung and TaitungCounties included tourism as a part of the local development strategy. In 2004, more than half of the counties/ cities positioned tourism as the key to the local development or regarded tourism as the industry with the highest business potential, an indication that the county/city leaders embrace tourism as a means to boost the local economy. This paper aims to promote the tourism industry in Keelung City by combining the theory of local governance with the local resources and marketing methods for the city to organize its aquatic recreational resources and plan feasible activities to launch the ocean tourism marketing efforts and integrate its own environmental resource and geographical advantages for realizing the idea of “city-harbor cooperation and mutual prosperity”.