從地方政治觀點看雲林地面型太陽光電的發展困境

The dilemma of Yunlin ground-type solar photovoltaic development: the perspective of local politics

周正履(Chou Cheng-Lu)

指導教授 ： 王振寰

國立政治大學/社會科學學院/國家發展研究所/碩士(2019年)

https://doi.org/10.6814/NCCU201901200

摘要

在台灣能源轉型的過程中，太陽光電扮演著舉足輕重的位置，但在大規模的開發案中，卻遇到不少問題，本文以雲林嚴重地層下陷不利耕作區作為分析對象，討論太陽光電專區發展面對的困境。筆者認為在專區發展的困境中，最為關鍵的因素乃是地方政治的影響。專區的開發會面對土地整合、社會共識、地方回饋金等問題，作為外來者的業者難以在地方上取得信任，縣政府因為缺乏誘因再加上在專區內沒有足夠的政治勢力，導致縣政府並未成為專區發展的中介者、媒合者，所以當業者需要解決以上問題時，就必須在地方上找尋地方關係良好的代理人。憑藉者代理人在地方上的社會網絡，雖可以有效的整合土地，但逢選舉期間，許多案場也因代理人之間的派系鬥爭導致案場胎死腹中。另一方面，專區的劃設方式讓地方上出現嚴重的利益分配不均，也是導致專區成為派系鬥爭的場域的重要原因。
從專區的發展經驗可以得知，地方派系可以用四種方法影響專區發展，分別是：掌握地方的話語權、掌握饋線資訊、協調地方的回饋機制、影響專區的制度發展。而地方共識跟地方的利益分配為地方能源之基礎，在地方缺乏社會共識並出現利益分配不均的情況下，地方派系會激化這些問題，最後導致專區停擺。另外，本文也發現，基礎建設不足、中央與地方的資訊不對稱、地方上行政分工導致缺乏主責單位、地方行政能量不足等等，都是導致專區難以順利發展的原因。

關鍵字

能源轉型 ； 太陽光電 ； 地方政治 ； 農地種電 ； 地方能源

並列摘要

In the process of Taiwan's energy transformation, solar photovoltaic has been playing the role of pivotal. However, the large-scale power plant development has encountered with many problems. This paper takes the unfavorable farming area in the sinking area of the serious stratum of Yunlin as an example to discuss the development dilemma faced by the solar photovoltaic special area. The author believes that local politics is the most critical factor in a special area. The development of the special area will face problems such as land integration, social consensus, and financial reward. It is difficult for the energy enterprise as outsiders to gain trust at the local level. The county government lacked incentives and sufficient political power in the district to lead its inability to solve the problems, caused it did not become an intermediary and mediator for the development of the special area. Therefore, if the practitioner needs to solve the above problems, they must find an agent with good local relations. It is possible to rely on the agent's social network to integrate the land effectively, but many cases are difficult to complete because of the factional struggle between the agents during the election period. On the other hand, the plan of the special area has caused an uneven distribution of local interests, which is also an important reason for the area to become a field of factional struggle.
It has been known from the development experience of the special area that local factions can influence the development of the special area by four methods: mastering the local discourse power, holding feeder information, coordinating the local feedback mechanism, and influencing the institutional development of the special area. Local consensus and profit sharing as the basis of local energy. In the absence of local social consensus and uneven distribution of benefits, local factions will intensify these problems and eventually lead to the suspension of the special area. In addition, this paper also finds the other reasons for the difficult development in the special area include the infrastructure shortage, the central and local information asymmetry, the lack of the main responsible unit in the local administrative division of labor and the lack of local administrative capacity.

並列關鍵字

Energy transformation ； Solar photovoltaic ； Local politics ； Solar photovoltaic on agricultural land ； Local Energy

參考文獻

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