邁向後發展型國家：「雲林離島式基礎工業區」與台西

Abstract

戰後台灣國家發展的模式具有「發展型國家」的特色，編定工業區則是發展型國家重要的政策工具。1991年行政院於雲林海線核定全台灣面積最大的編定工業區「雲林離島式基礎工業區」，最後卻只有七分之一開發為台塑六輕，其餘大部分土地仍為當地漁民養殖使用，計畫與事實出現極大的落差，也與發展型國家無往不利的表現不符。

本研究以文本分析、半結構訪談及參與式觀察等方法蒐集資料，梳理離島工業區編定至今的政經脈絡，釐清為何離島工業區未按計畫開發，以及此情形下對台西的影響，嘗試回答「發展型國家究竟怎麼了」。研究發現，台塑集團及雲林縣長廖泉裕在離島工業區編定初期皆有重要角色，投資者及地方政府的力量可謂與中央政府並駕齊驅，中央政府權威減弱，爾後六年國建的失敗更象徵中央政府掌握發展走向的能力式微。此外，歷任雲林縣長與中央政府在離島工業區議題上呈現引領、阻撓、互利及牽制等多種不同形式的競合關係，顯然地方政府已是國家實踐計畫不可忽視的關係人；至於中央政府內部的不同單位對於發展想像亦有歧異論述，近年開始檢討產業用地政策及編定工業區閒置的問題。惟國家的發展意志事實上一直都存在，在前述種種削弱發展能力的因子下，國家無法貫徹其發展意志，只能就其計畫再修正提出折衷方案，逐漸邁向協調整合角色的「後發展型國家」。同時本研究指出，離島工業區此一未按計畫執行的開發案仍對地方造成諸多負面影響，尤其與編定工業區範圍重疊的台西漁業，面臨法規衝突、地理環境改變等生存問題，漁業以外還有排擠觀光資源、居民對政府不信任等結果。受到威脅的台西居民，亦有兩波顯著地組織回應，展現自身主體對抗不速之客。

總而言之，本研究認為發展型國家的「國家」缺少地方政府、投資者及地方居民的視角，這三者是國家計畫成敗與否不可或缺的角色，發展型國家過去以國家中心論觀點的敘述有修正必要。最後，本研究以「法律上已有效力的法定計畫」及「幾乎沒有按照原定計畫開發」二項條件為前提，提出「不完全開發」的影響，而不完全開發可能是後發展型國家容易出現的現象。

Post-war Taiwan's national development model has been characterized by the features of a "developmental state," with the industrial park being a crucial policy tool of such a state. In 1991, the Executive Yuan approved the "Yunlin Offshore Industrial Park," the largest industrial park in Taiwan, located along the Yunlin coast. However, only one-seventh of the zone was developed into Formosa Plastics Group's Sixth Naphtha Cracker, while the majority of the land remains used by local fishermen for aquaculture. This significant discrepancy between the plan and reality does not align with the typically successful performance of a developmental state.

This study employs text analysis, semi-structured interviews, and participatory observation methods to collect data. The research subjects are the Offshore Industrial Park and Taixi Township, aiming to trace the political and economic context from the designation of the Offshore Industrial Park to the present. It seeks to clarify why the Offshore Industrial Park was not developed according to the plan and how this situation has impacted Taixi, attempting to answer the question, "What happened to the developmental state?"

The study finds that the Formosa Plastics Group and Yunlin County Magistrate Liao Chuan-yu played significant roles in the initial phase of the Offshore Industrial Park designation. The power of investors and local governments paralleled that of the central government, indicating a weakening of central government authority. The failure of the Six-Year National Development Plan further symbolized the central government's diminished capacity to direct development. Additionally, successive Yunlin County magistrates have shown various competitive and cooperative relationships with the central government regarding the Offshore Industrial Park issue, such as leadership, obstruction, mutual benefit, and checks and balances. This clearly shows that local governments have become indispensable stakeholders in the national planning process.

Within the central government, different departments have varied discourses on development visions, and in recent years, they have begun reviewing issues related to industrial land policies and the idling of designated industrial parks. Although the national development intent has always existed, due to factors weakening the developmental capacity, the state can no longer freely implement its development will. Instead, it has had to revise and propose compromise plans, gradually moving towards a role of coordination and integration, forming a "post-developmental state." This study also highlights the negative impacts of the Offshore Industrial Park's unplanned development on the local area, particularly on Taixi’s fisheries, which face regulatory conflicts and geographical changes. Beyond fisheries, there are issues such as competition with tourism resources and residents' distrust of the government. The threatened residents of Taixi have had two significant organizational responses, demonstrating their subjectivity in resisting unwelcome intruders.

In conclusion, this study argues that the "state" in the developmental state lacks the perspectives of local governments, investors, and local residents. These three are indispensable roles in the success or failure of national plans, suggesting the necessity to revise the past state-centric narratives of the developmental state. Finally, this study proposes the concept of "incomplete development" based on the conditions of "legally effective statutory plans" and "almost no development according to the original plan." Incomplete development may be a phenomenon more likely to occur in a post-developmental state.