地方治理策略對空間發展影響的微觀分析: 兩種地方發展策略的比較

Abstract

都市發展乃是一個有機的動態調整過程，在發展過程中有些地區興起擴張，但也有部分地區衰敗沒落。本研究旨在探討台中都會區成長過程中部分市區衰退現象，透過分析台中都會區舊市區在1988年至2016年間，針對都市發展過程與地方治理手段對都市地方空間的衝擊進行研究。主要內容在於比較分析都市發展過程下的治理策略，產生都市空間區位上的二種衰退現象。包含：都市舊核心區做為經濟增長點的街區因交通整治策略而衰退、都市城鄉過渡區鉅型計畫所帶來的土地重劃下的商圈衰退，藉此闡明過去台中都會區在進行都市擴張進程，因都市空間發展的治理策略產生的衰退型態。都市擴張過程所催化的地方衰退，彰顯了治理策略導入地方空間後，產生以在地鑲嵌型態為主的中小企業產業再結構，也因地方經濟活動的變化或衰退，使地方空間人口結構改變。本研究藉由相關資料回顧分析都市的發展過程所採取的地方空間治理行動，結論發現過去台中市政府部門的政策治理，並沒有考慮地方空間是否有相應足夠的發展基礎，即產業與人口成長去支撐都市空間擴張的張力。換言之，本研究認為地方政府在治理策略的實踐過程與影響層面，未能考慮地方空間是否能夠承受這種因治理策略所帶來的實質改變，是過去台中市地方空間內部產生衰退的主要原因。申言之，這類地方治理手段所造成的短期性衰退常被解讀為地方治理失靈，透過兩種分別採取不同治理手段的地區比較分析，說明了不同治理手段對空間發展影響的差異性。本研究的特點在於對都市成長過程中的個別地方與個別的治理手段做了地區性的微觀分析，補充了目前都市理論注重整體性與長期性效果的分析能力。這個結果對於日益競爭與透明的地方政治，以及地方治理手段的設計與配套措施，甚至是政策論述能力都具有高度的參考價值。

Urban development refers to an organic process of dynamic development adjustments, with expansion in some areas and decline in others. This research aims to explore the decline of some urban areas in the growth process of Taichung’s metropolitan districts from 1988 to 2016. The main focus is to study the governance strategies in the process of urban development, which resulted in two kinds of decline in urban space and locations, and to analyze the urban expansion history in Taichung metropolitan area. It was found that the governance strategies of urban space development have caused the local residents and industries to weaken in relation to the local space, resulting in the emergence of a decline pattern. The local recession caused by the urban expansion strategy of Taichung Metropolitan area affected a few districts: the old urban core area as the economic growth point of the neighborhood is declining due to traffic improvement strategies, and the business district is declining due to the land rezoning which was caused by the mega project of the urban-rural transition zone. The local recession caused by these urban expansion processes demonstrates that after introducing to local space the governance strategies, which were embedded into local industries, the restructuring of small and medium-sized enterprises has been accelerated. Changes or decline in local economic activities have also affected the demographic structure of the local space.By reviewing and analyzing the governance actions taken in the development process of the local spaces, it was established that the policy governance conducted by the government departments in the past did not consider whether the local space has a corresponding and sufficient development foundation which the government policies were based upon, namely, the growth of industry and population, and the tension that supports the expansion of urban space. In other words, this study illuminates how the local government's failure to consider whether the local space could withstand the substantial changes brought about by the governance strategy, is the main reason for the internal decline of Taichung City's local space in the past. In other words, the short-term decline caused by this local governance method is often interpreted as a local governance failure. Through the comparative analysis of two regions with different governance methods, the differences in the impact of different governance methods on spatial development are illustrated. A unique aspect of this study is in making a regional micro-analysis of individual places and individual governance methods in the process of urban growth, which complements the current urban theory's ability to focus on overall and long-term effects. The findings of this research will have great reference value for the design and supporting measures of local governance means, and even for the sake of policy discussion for the increasingly competitive and transparent local politics.