新竹縣政府治理之研究（1989-2009）─「一致政府」與「分立政府」的觀察

The Study Of The Administrative Governance of Hsinchu County(1989-2009) ─From The View Point Of “Unified Government” And “Divided Government”

張碧琴(Pi-Chin Chang)

指導教授 ： 周繼祥

國立臺灣大學/社會科學院/國家發展研究所/碩士(2014年)

https://doi.org/10.6342/NTU.2014.10787

摘要

新竹縣政府於1989年首次由非國民黨籍縣長執政，繼而在往後的廿年中，出現了民進黨與國民黨籍縣長接續執政的「政黨輪替」現象。對於一向係由國民黨籍縣長長期執政的新竹縣來說，「分立政府」的出現及其影響無疑是個相當值得研究的議題。本文即嘗試從「一致政府」（unified government）與「分立政府」（divided government）的角度出發，觀察這兩種情況對新竹縣的縣政治理所產生的影響。
1987年政府宣布解嚴之後，於1989年縣市長選舉中，新竹縣是與台北縣、宜蘭縣、彰化縣、高雄縣以及屏東縣，同時出現「分立政府」的諸縣市之一，從此民進黨在新竹縣執政長達十二年之久。對於向來被視為是相對保守的新竹縣客家選區來說，何以會出現「分立政府」現象？是本文主要的研究動機之一。
1989年以前，台灣的地方政府長期由國民黨一黨獨大的情況，固然是歷史的現實，但在1989年的地方首長選舉中，新竹縣與其他五縣市的「府」（縣府）與「會」（議會），同時出現「分立」的狀態，確實相當耐人尋味，若僅是以「民主潮流」來詮釋之，則顯然是過於簡單粗糙，畢竟在當時全台廿三縣市中，只有六個縣市出現這種狀態；故「民主潮流」之說並不足以概括這種現象的產生。尤有甚者，十二年之後，新竹縣又重回由國民黨主政的「一致政府」狀態，其間的轉折與變化過程，無疑也是值得探究的議題。
本文深入探討新竹縣地方派系的糾葛，同時解析自1989年至2009年期間，歷屆新竹縣長的選戰攻防與當時的政治氛圍，說明競選者的政見與選民投票傾向的關連，並據以解析地方上出現「一致」或「分立」政府狀態的成因。
本文發現，不論出現「一致」或「分立」政府狀態，新竹縣的府會關係，對縣長的縣政治理並沒有顯著的影響。其次，新竹縣議會的議員對縣府治理的支持，並未因縣長的黨籍而出現杯葛情事，此外，「敬老津貼」政見自1993年迄今，仍是主導縣長選情一項重要議題。

關鍵字

分立政府 ； 一致政府 ； 新竹縣長選舉 ； 敬老津貼 ； 政黨輪替 ； 客家選區

並列摘要

In 1989, the non-KMT party was in power in Hsinchu County government for the first time. During the 20 years period after that, both KMT and DPP parties were alternatively taking the ruling power, so-called “party alternation” phenomena. To the government of Hsinchu County, which had been ruled by KMT for the longest time, the emerging and impact of a “divided government” is a topic that is worthwhile to study. This paper intends to observe and study the influence to the administrative governance of Hsinchu County government due to this phenomena, from the view point of “unified government” and “divided government”.
Since the end of martial law in 1987, in the County Magistrate and City Mayor election in 1989, Hsinchu government was one of the divided governments along with Taipei County, Yilan County, Changhua County, Kaohsiung County and Pintong County. Ever since, DPP has been in power in Hsinchu County for a period of 12 years. Hsinchu County is mainly a Hakka election district, it was considered to be very conservative in the past. Why the “divided government” was emerged, is the origin of the study in this paper.
The historical fact was that prior to 1989, KMT party was the only ruling party of local governments in Taiwan. However, in the election of local government leaders in 1989, the “divided” status of “County Government” and “County Council” of Hsinchu County and other five counties was occurred at the same time. It was a situation to be concerned, if we simply describe it as a “democratic trend”, it will be too rough. Because this status was emerged only in six counties and cities in 23 counties and cities in Taiwan back at that time. In other words, “democratic trend” is not sufficient to explain the emerging of this phenomena. Furthermore, 12 years later, Hsinchu County was returned to the power of KMT party, a “unified government” again. The process of turning around and change is a topic that is worthwhile to be studied and discussed.
This paper explored the entanglement of local political factions in Hsinchu County, and analyzed the defensive and offensive tactics adopted in the county magistrate election since 1989, as well as the political atmosphere. It generally explained the relationship between the political views of candidates and the voting orientation of electors. Based on that, this paper analyzed the cause of the emerging of “unified” or “divided” local government.
In addition, this paper discovered that regardless of the emerging of “unified” or “divided” relationship between the government and the council in Hsinchu County, it does not have any obvious impact to the administrative governance of the Magistrate. In addition, the support from the councilors of Hsinchu County Council to the administrative governance is still strong regardless of the political party that the Magistrate belong to. The interesting thing is that the political view of “senior citizen allowance” is still an important issue to the election of magistrate since 1993.

並列關鍵字

Divided Government ； Unified Government ； Election of Hsinchu County Magistrate ； Senior Citizen Allowance ； Political Alternation ； Hakka election district

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