跨界治理：台資參與昆山制度創新的個案研究

Making Transborder Governance: A Case Study of the Role of Taiwanese Capital in Kunshan's Institutional Change

柏蘭芝(Lan-Chih Po) ； 潘毅(Ngai Pun)

《城市與設計學報》 15&16期 (2003/09) Pp. 59-91

https://doi.org/10.30008/CD.200309.0005

摘要

本文以中國江蘇昆山地區台資和地方政府的互動爲研究物件，尤其是以在台商影響下建立的出口加工區爲案例，討論台資參與中國地方制度創新的過程。本文的假設是，作爲外力的台商和大陸的地方政府之間，爲了解決利益糾結的各種矛盾，在一個歷史的過程中，有些區域逐漸摸索、建立了一個跨界治理(transborder governance)的系統來支援全球化脈絡下的跨界生産。所謂跨界治理，指的是政府透過和跨界的、不同利益主體的行動者互動協商，形成一組制度規範，以利於跨界生産體系的運用。台商從鑽空子、走後門到協助建立制度，從而也參與和改變了地方的制度變遷。透過對昆山的個案分析，我們看到地方對全球化特定的編入和調節方式。然而，這個試圖對流動加以管理和規範的跨界治理，勢必充滿內部的張力。而昆山的制度創新，儘管充滿活力，卻也存在許多治理的漏洞。本文強調對中國大陸制度變遷的關注應該進入新的層次：從觀察轉軌過程的亂象，到觀察這個萌生的治理框架如何重新結構新的地方權力版圖。這個形成中的“治理”結構也將聯繋全球化脈絡下國家和社會關係不斷的界定和再界定。

關鍵字

治理 ； 跨界治理 ； 制度變遷 ； 制度創新 ； 台資 ； 昆山 ； 出口加工區 ； 中國

並列摘要

This paper aims to explore how Taiwanese capital has engaged in the institutional innovation of a mainland Chinese locality. Our research focus is the transborder governance between Taiwanese capital and the local government of Kunshan in Jiangsu province in the making of an export-processing zone. The central argument of this paper is that in order to tackle with various conflicts revolving around interests of different parties, Taiwanese capital, as an outside force, together with local government in Kunshan, have gradually developed a system of transborder governance over time. Transborder governance refers to a set of institutional regulations arranged by the local state through a series of negotiations among transborder actors with varying interests. Through this process, Taiwanese capital has maneuvered within Chinese policy loopholes, and in doing so, participated in building institutions, and instigating local institutional change. This case study of Kunshan demonstrates how a locality responds to globalization, specifically with regard to its unique regulatory structure and mixed spatial-temporal dimensions. Inevitably, this effort to manage forces of flow is destined to encounter internal tensions. For all its dynamism, institutional innovation in Kunshan is replete with discrepancies and conflicts. This paper emphasizes a new perspective from which to observe institutional change in China, shifting from a focus on the apparent disorder of a transitional era, to the task of mapping emerging structures of power within a new framework of governance. The formation of transborder governance, more importantly, demonstrates the constant definition and redefinition of the relation between state and society in the context of globalization.

並列關鍵字

governance ； transborder governance ； institutional change ； institutional innovation ； Taiwanese capital ； Kunshan ； Export-processing Zone ； China