發展主義與新自由主義化交織的區域交通基礎設施－以台灣高鐵建設與開發為例

本研究從發展型國家與新自由主義切入，探討政府為因應政治經濟需求與國家財政蹇促情形下，區域交通基礎設施由公轉私，及結合周邊土地開發追求不動產利益的過程，成為左右臺灣空間發展的特殊經驗，從台灣高鐵的建設與開發過程，政策的形成與建設上涉及多方權力與利益，沿線土地使用與都市發展變遷，使高鐵車站特定區成為權力操作、發展治理，及資本流動的節點，更展現特殊面貌，各種結構性政策與能動性要素間的共構與互相滲透，使得區域發展變遷更趨複雜，也引發政策結構再生產，高鐵車站特定區成為區域發展的重要焦點，而本研究主要瞭解特定區從規劃、定位道開發的過程，以突顯國家引領都市發展的脈絡，並討論不同行動者的行動邏輯與互動關係如何影響區域發展，藉由分析新自由主義在發展中的具體實踐，而歸結出鑲嵌於國家脈絡下的區域開發與治理模式及對地區之社會結構轉變的因應與調適。本研究目的有三，包含：(1)探究國家啟動基礎建設的思維與推動高鐵建設計畫的相關作為；(2)分析地方尺度下高鐵車站特定區的發展情形與問題；(3)以桃園、苗栗案例分析、瞭解在差異的權力、資源、機制施為中，高鐵特區發展面臨的問題與差異。方法上，本研究以結構化理論作為主要的論述方式，同時藉由相關的政策資料、文獻、新聞報導、田野調查與深入訪談等方法，做為鋪陳臺灣高鐵建設計畫的歷程與結合土地開發、及區域發展的論述，以提供本研究取徑。研究結果呈現，政府的治理策略並不完全呈現國家退位及新自由主義蔚為主流，而是「以發展型國家為主，新自由主義為輔」與「以新自由主義為主，發展型國家為輔」的兩種策略，交織操縱著政經與空間的發展與變遷，區域成為結構化場景所在，特定區成為資本利益競逐的場域，相互模仿、複製發展模式，並隱含著多變、短期逐利、假性需求與投機的空間競逐與高風險環境；在空間發展引導與治理的意涵上呈現出：(1)以新自由主義推動臺灣民營化公共建設產生沉沒危機、(2)公共建設結合土地開發制度政治經濟操作下的沉重代價，以及(3)臺灣西部走廊空間發展的複製與競奪等現象。

關鍵字

發展型國家；新自由主義；結構化理論；高鐵車站特定區

並列摘要

This study analyzes how developmental state and neoliberalism working as core mechanism to affect the development of regional transportation construction. Due to financial constraints and national political economy, many national projects are turned into private sectors. For huge transport infrastructure, it is particularly evident that land development surrounding the project is considered a means for financial compensation. Thus, developing the surrounding land area of high speed rail stations becomes a focus for both local and central governments. High speed rail special districts become a spatial nexus where economic activities and housing projects mushroom. The present study focuses on the policy making process of THSR and two HSR special districts to understand the structuration of its spatial making. How the working of neoliberalism has impacted on the local and central governance and local society is analyzed to understand THSR as a catalyst for regional and local growth. The present study has three purposes, including: (1) to analyze governments’ roles in formulating high speed rail stations as spatial nexus and urban growth, (2) to analyze how the special districts are developed under neoliberalism at the local scale, and (3) to compare and contrast how various authorities, resources, mechanisms are implanted and negotiated for developing the special districts using the cases of two special districts. Methods for this study include field survey, qualitative interviews, literature review, and documentary analysis. Structuration theory is used as a guiding framework to delineate actors and structure. The results show that government intervention is the main driving force for the development of THSR and its special districts. THSR special districts have become a competitive arena where capitalistic interests negotiate with the governments and among themselves. The arena witnesses pseudo-demand for land and activities in the short run. Both short-term profit-making and spatial speculation make the districts a high-risk environment. In sum, the spatial development of the special districts point to three issues: (1) Neoliberalism, through privatization of public works, has caused a crisis of land development and areal growth; (2) public infrastructure, combined with land development, may become costly socially and politically; and (3) the competition among the special districts of THSR corridor has witnessed a series of replication and furious competition.