觀光工廠政策執行阻礙與變革策略之研究－以花蓮縣為例

Study of the Tourism Factory Policy Implementation Obstacles and Change Strategies － Case Study of Hualien Country

吳珈誼(WU, JIA-YI)

指導教授 ： 呂育誠

國立臺北大學/公共事務學院/公共行政暨政策學系/碩士(2012年)

摘要

經濟部中部辦公室為協助營運狀況瀕臨困境的傳統製造業有另一個轉型與永續發展的機會，自90年代起，陸續研擬推動傳統產業再生發展之政策，「觀光工廠政策」即是以各產業之製造業者為主要輔導對象，計畫性地輔導製造產業轉型「觀光化」，以增加其產業附加價值。花蓮地區因擁有種類多元的天然石材資源，又輔以石材產業的獨特性足以代表花蓮在地產業特色，於是乎在2003年至2006年期間，有兩間石材加工廠業者參與了政策輔導。但卻於輔導期滿後歇業或是輔導期間不再繼續參與輔導！故，本論文即是以政策執行理論為基礎，並以文獻分析法、個案研究法以及深度訪談法，探討該政策昔日於花蓮地區的推動過程中，中央主管機關(含相關執行單位)、花蓮縣政府以及業者之間，在執行過程遭遇了哪些阻礙？以及日後若是在當地繼續推動此政策的話，有哪些改進的空間？希冀可以提供政府暨未來想參與政策推動之業者的執行參考。
本論文研究發現如下：
一、理論部分：（一）觀光工廠政策的執行，由傳統之第一代執行模式轉變為第二代由下而上，以及第三代整合型執行模式。（二）影響花蓮地區觀光工廠政策執行的關鍵因素：在中央主管機關暨相關執行單位為「政策目標的認知」、在地方政府為「資源欠缺」、在業者部份，主觀層面則係「政策認知」、客觀層面則係「產業條件」。
二、實證部分：（一）政策資源供應的及時性。（二）業者自備資金狀況影響石材產業發展工廠觀光化。（三）公私部門溝通管道不佳形成執行阻礙。（四）地方政府政策「協助者」的治理職能與角色模糊。（五）業者的「財務知識」以及「外部網絡聯結」亦是影響政策執行的因素。
本論文研究建議如下：
一、對中央主管機關的建議：（一）考量相關利害關係人意見。（二）運用彈性輔導模式。（三）建立常態且具官方背景的經營知識顧問單位。（四）建立地方性溝通協調服務窗口。（五）增設強化業者企業經營能力的財務知識教育課程。（六）建立回應性執行成效控管機制。（七）建置業者與參觀民眾之問題暨服務回報資訊系統。
二、對政策執行單位的建議：（一）舉辦政策相關訓練課程以強化執行人員「跨領域」基礎知
識。（二）建立激勵執行人員的升遷獎勵制度。
三、對地方政府的建議：（一）積極爭取中央資源。（二）促進地方特色產業與政策結合。（三）
整合縣府資源協助政策的行銷推廣。
四、對業者的建議：（一）參與政策的自有資源須足夠。（二）主動建立外部網絡聯結管道。（三）強化財務經營知識與會計結構。（四）研發民生消費關聯性高的商品。
五、對其它政策利害關係人的建議：（一）觀光行業可與觀光工廠業者進行策略聯盟。（二）社區居民應內化參與政策的認同感。

關鍵字

觀光工廠計畫、觀光工廠、政策執行、變革策略

並列摘要

Ministry of Economic Affairs Central Region Office to assist the operating conditions of traditional manufacturing industry to the brink of the plight of another transformation and sustainable development opportunities, since the 1990s, they planed to design many policy to renewable the development of traditional industries. The main object of the assistance of ”Tourism Factory Policy ”are various industry manufacturers,which planned counseling manufacturing industry in transition "tourist" in order to increase their industrial added value.Due to Hualien is with diverse types of natural stone resources and the uniqueness of the stone industry, that sufficient to represent the industrial features of Hualien on the ground. From 2003 to 2006, there are two stone processing factory operators involved in the policy guidance, but one went out of business, another one was out of the counseling during the counseling expiration of no longer continue to participate in counseling.In order to study the policy promoting the process of the former in the Hualien, the central competent authority (including the execution units), the Hualien County Government and industry encountered in the implementation process which hinder and the future of the local to continue to promote this policy, what room for improvement ? This thesis based on the implementation of policy, and literature analysis, case study method, as well as depth interviews. Hope the thesis can provide the reference implementation of the government-cum want to participate in the future of the industry's policies to promote.
The findings of research are as followings：
1.Theoretical part：(1) Tourism factory implementation of the policy change by the implementation of the first generation of the traditional mode for the second generation of bottom-up, as well as third-generation integrated execution model.(2) The key factors of influence in the Hualien tourist factory policy implementation：The central competent authority is ” awareness of the policy “, local government is “resource gap”, in the part of the industry, the subjective level, policy awareness, the objective level is the “industry conditions”.
2.The empirical part：(1) The timeliness of the policy of resource supply.(2) Industry-owned capital position to influence the development of stone industry factory tourist-oriented.(3) Public and private sectors poor communication channels to form the implementation hinder.(4) Governance functions and role ambiguity of the local government policies to help.(5) The industry's "financial knowledge" and "external network links are also factors affecting the implementation of policies.
This recommendations proposed by this study are as following：
1.To the central competent authority：(1) Consideration of the relevant interested parties views.(2) Using elastic counseling model.(3) To establish possessed official background and normal business knowledge consultant unit.(4) To establish local communication and coordination service agency.(5) To add financial literacy education programs to strengthen the entrepreneurial capacity of the industry.(6) Set up responsive implementation of the effectiveness of control mechanisms.(7) To build industry to visit the people of the problems and return information system.
2.To policy implementation unit：(1) To organization of policy-relevant training courses to strengthen the cross-cutting basic knowledge of executives.(2) To build motivate executive officers of the promotion system of incentives.
3.To local government：(1) Actively seek a central resource.(2) To promote the industry local characteristics with the policies’ score spirit.(3) To integrate the county resources to assist in the marketing and promotion of policies.
4.To industry：(1) Involved in the policy of its own resources shall be sufficient.(2) Take the initiative to establish an external network links pipeline.(3) Strengthen financial management knowledge and accounting structure.(4) R & D people's livelihood and consumption associated with high commodity.
5.To other policy interested party：(1) Tourism industry and tourist factory industry strategic alliance.(2) Community residents have community of identity that involved in the policy.

並列關鍵字

Tourism Factory Policy、Tourism Factory、Policy Implementation、Change Strateg

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