我國自由貿易港區政策過程分析之倡導聯盟架構觀點

Abstract

本文係從公共政策理論之倡導聯盟架構(Advocacy Coalition Framework)觀點，論述2003年自由貿易港區設置管理條例三讀立法通過及施行前後，多元的利害相關政策行動者彼此策略互動，並對於其彼此間的信仰體系認知之相互調適過程進行檢視。高雄港做為台灣最大的港埠，在1999年仍是全球第三大貨櫃港埠，但2000年的貨櫃裝卸量為南韓釜山港所超越，上海港在2000年超越高雄港，而深圳港的貨櫃裝卸量也在2003年超越過高雄港。文中將多元行動者的策略互動分為三個階段，政策制定前期(1990年至2002年10月)；政策制定期(2002年10月至2003年7月)；以及政策執行期(2003年7月迄今)。發展聯盟與反對聯盟各有其不同的其信仰系統，包括規範性之核心信仰、政策核心信仰、以及工具性之政策信仰，本文均進行深入的理論探討。

Insights and conclusions of this study are based on an analysis of a prominent case in Taiwan: the planning and decision making of the Free Port Initiative for Kaohsiung, one of the leading harbors in the world. Generally speaking, political coalitions are critical because of their importance in passing and implementing major policy initiatives. This study utilizes the theory of advocacy coalition framework in order to analyze the policy implementation of Taiwan’s free port policy. The author then presents three phases of analysis: the pre-policymaking period (from 1990 to October 2002), the policymaking period (from October 2002 to July 2003), and the policy implementation period (from July 2003 to the present). Two belief systems—the limited development and the broad participation coalition—are also illustrated. The paradox of the free port policy is that the Taiwan government uses a top-down and one-size-fits-all policy direction to mandate a bottom-up implementation approach