失敗發展型國家？國家轉型與生物科技產業

Abstract

本研究試圖探究國家轉型對產業的影響。本研究指出既有發展型國家理論帶有成功典範的盲點。而能力弱化的說法，更扁平化國家轉型過程中，政商關係與空間邏輯的改變。因此，本研究試圖從國家與產業的互動過程，如何受到非預期因素的挑戰，並從中探討國家轉型的可能。 本研究的開頭討論發展型國家在生技產業的失靈。從保生疫苗的案例，國家當時透過進口替代的方式來發展，卻意外的遭遇中央地方在是否開放市場上的衝突。而這樣的衝突隱含了「保護黨營事業」的疑慮。本研究認為並非是官僚在規劃時的錯誤決策導致，而是非預期的社會鬥爭。 去黨國的浪潮改變了政商關係與空間策略選擇。民進黨以挹注基礎研究、鼓勵創投來取代黨國體制的直接投資模式。在空間計畫上，以平衡區域發展對抗黨國體制的資源集中。對於民進黨而言是瓦解國民黨的政治版圖；對於私人資本而言是土地投機的機會，形成上下交相賊的結果。此一時期，生物科技園區的設立是否帶動產業並不重要，而是要達到政治效果。 民進黨除了透過地方版圖的瓦解以外，更透過翁啟惠的穿針引線，積極與邀請旅美台人歸國合作，試圖深化政商關係。然而，民進黨的生技政商聯盟卻意外地成為國民黨進行兩次政治鬥爭（宇昌案、浩鼎案）的目標。 發展型國家的失敗，並非來自於官僚的不理性，而是忽略了社會鬥爭的非預期影響，以至於無法對稱解釋失敗個案。國家轉化的過程當中，產業並非純如發展型國家時期作為發展目標，而是成為瓦解黨國體制與深化政商聯盟的工具。

This study attempts to explore the impact of state transformation on industry. This study points out that there are blind spots in the developmental state theory as a successful paradigm. The claim of weakened state capacity simplified the change of government-business relations and spatial logics in the process of state transformation. Therefore, this study tries to understand how state is transformed by state-business interaction process. The state implemented import substitution policy to develop biotechnology, or precisely the vaccine industries, in the early stage but unexpectedly encountered the local-central conflicts in the open market in the 1980s. Such conflicts raised concerns about 'unfairly protecting the Kuomintang (KMT) business.' after reviewing the documents, it argued that rather than the wrong decision made by the bureaucrat, but an unanticipated social struggle that led to the fiasco of import substitution policy. The wave of party-state expurgation changed the relationship of government-business relations and spatial strategy selection after the first regime shift in the 2000s. The new ruling party, the Democratic Progress Party(DPP) funds in basic research and encourages venture capital to replace the direct investment model of the party-state system. In the spatial strategy, DPP replaces polarization policy of party-state system with balanced regional development. Under the new industrial-spatial policies, the DPP wrecked the political territory monopolized by the KMT, and at the same time, the private capital take advantage of the spatial dispersion of bio-parks to engage in land speculation. During this period, the biotechnology park was for land profit, rather than industrial development. In addition, DPP actively recruits Taiwanese American researchers to return through the threading of Chi-Huey Wong, the star bio-scientist and later the President of Academia Sinica, and tries to deepen their government-business relationship. However, the DPP’s biotech government-business alliance has unexpectedly become the target of the KMT in two political battles (TaiMed Biologics and OBI Pharma, Inc.). The failure of developmental state does not come from bureaucratic irrationality, but from ignoring the results of social struggles, so that failures cannot be explained symmetrically. In the process of state transformation, the industry is not purely set as a development goal, but a tool to expunge the party-state system and deepen the government-business alliance.