駐軍、劃界與設縣：康熙年間的臺灣治理議論

本文以康熙時代諸羅縣的行政區變遷個案，探討清朝皇帝、官員與知識份子面對臺灣這一新領土時所發展出的治理思維與政治文化，由此重新檢視康熙時代之於臺灣的歷史意義。過往在臺灣史學科發展史的影響下，研究者多以開發史或現代國家價值的角度來檢視前現代的清朝，進而將行政區增置與否簡化為治理態度的反應，並衍伸出以行政區發展為主軸的清代臺灣歷史框架。此一觀點忽略了不同層級官僚的處境，以及他們真正關心的事務；然而，正是這些因素主導著地方政務。為此，本文以清朝官僚的議論為中心，結合過去各自獨立的官僚體制、海盜對策、方志編纂、經世之學以及遷界歷史等領域，重新建構康熙23年至雍正元年（1684-1723）臺灣地方治理議題的發展歷程。清代地方政府不僅是政府與地方社會的接觸面，亦是官僚體系的延伸，這使得地方官員需要不斷權衡經世理想與政治現實。康熙23年，福建省級官員決策出的「一府三縣」框架很快便引起管理上的困難，但臺灣地方官員並未非議於此，而是在此前提下呼籲增加駐軍，但一直未能如願。到了康熙40年代末，在全國性海賊威脅下，省級官員授意軍隊進駐北臺灣。然而這引起地方官員不滿，抗議未果後轉而透過人際關係與福建文人陳夢林合作，編纂《諸羅縣志》以繞過上級官員，傳達撤軍與縮減轄區的主張。陳夢林則因著自身的遷界經驗以及對經世之道的追求，反而主張應額外設立新行政區。此一訴求於康熙60年朱一貴動亂後再次出現，但仍未被朝廷接納，卻在雍正皇帝登基後迅速通過。這反映出地方治理背後龐雜的支持運作體系的劇烈轉向。本文透過揭示隱藏於行政區政策背後的運作與政策文化，提供了梳理清代臺灣政治史的另一種可能性。

關鍵字

官僚體制；行政區；經世；諸羅縣；彰化縣

並列摘要

This article will be focusing on a case study of the administrative district change of Zhuluo County（諸羅縣） during the Kangxi era of Qing Dynasty. By exploring the governance thinking and political culture developed by the emperors, officials and intellectuals of the Qing Dynasty when governing the empire’s new territory, Taiwan, this article will thus re-examine the historical significance of the Kangxi era to Taiwan. In the past, researchers that were influenced by the development context of Taiwanese history studies were mostly examining the early modern Qing Dynasty from values that defined modern countries and the perspective of studies of development history. They then simplified the essence of administrative districts’ addition to solely represent the governance attitude of Qing bureaucracy in Taiwan. In the end, the main historical framework of Taiwan under Qing rule was extended from this standpoint. Previous researches have neglected the situation of bureaucrats throughout different ranks and the issues they had really concerned about. However, those were actually the dominant factors that truly influenced the local government administration. To this end, this article will be focusing on the discussion of the Qing Dynasty bureaucracy, combining the study fields that were once independent from each other, such as bureaucratic system, piracy countermeasures, local gazette compilation, statecraft（經世）and history of Great Clearance（遷界）. Ultimately, this article aims to reconstruct the development of Taiwan's local governance issues from A.D. 1684 to 1723. The local government in the Qing Dynasty was not only the interface between the government and the local society, but also an extension of the bureaucracy, which made local officials need to constantly weigh the ideal statecraft and political reality. In 1684, the “One prefecture with three counties consisted”（一府三縣）administrative framework decided by Fujian provincial officials caused management difficulties instantly. However, local officials in Taiwan did not criticize this. Instead, they called for an increase in the garrison under this premise but failed. By the time around 1710, under the threat of pirates surrounding the entire coastline, provincial officials finally instructed garrisons in northern Taiwan. However, that caused dissatisfaction among local officials. After the unsuccessful protests, they turned to cooperate with Fujian literati Chen Meng-in（陳夢林） through interpersonal relations, compiling "Zhuluo County Chronicles"（《諸羅縣志》）by leapfrogging higher-rank officials, only to convey the demand of withdrawing troops and downsize the administrative area. Chen, on the contrary, advocated the establishment of new administrative districts based on his own experience in the Great Clearance and his statecraft idealism. This claim reappeared after the Zhu Yi-gui（朱一貴）turmoil in 1721 and was denied by the Court once again. However, the exact claim was instantly accepted by the Court soon after Emperor Yongzheng（雍正皇帝） ascended the throne, reflecting the drastic shift of the sophisticated bureaucratic system in the Court that interacted and supported local governance in Taiwan. This article will be revealing the operation and policy culture hidden behind the administrative district policy and tries to provide another possibility to sort out the political history of Taiwan under Qing rule.