從國土計畫探討科學園區設置與鄉村發展的政策衝突與整合－以中科四期與竹科紅柴林基地為例

Abstract

我國科學園區發展政策之目標在於創造一個「研發、生產、生活和生態並重，環保、經濟、e化兼顧的理想園區，以高科技產業發展為主，積極擴散產業群聚效應，符合永續發展與在地需求。」自1980年由政府籌設第一個科學園區--新竹科學工業園區始，基於其經濟上的亮麗表現，政府乃於1996年及2003年分別設立南部科學工業園區及中部科學工業園區，形成『西部高科技走廊』，成為臺灣產業經濟的重要支柱。惟相對於此等政策宣示，科學園區的設置與營運事實上卻是爭議不斷，舉其犖犖大者，計有環境污染、土地徵收、資源競奪等。雖然高科技產業的環境污染問題在台灣並未被廣泛地認識，但是它所造成的土地徵收以及與農爭水的問題卻在新聞媒體上時有所聞，甚而引發「土地正義運動」及反中科四期搶水等社會運動。進言之，面對臺灣農村的衰敗與窳陋，我國於2011年7月通過「農村再生條例」之立法，來達成農村再生之目的。揆諸該條例，其目的在「促進農村永續發展及農村活化再生，改善基礎生產條件，維護農村生態及文化，提升生活品質，建設富麗新農村。」但倘若農業之所繫的基礎生產條件(土地與水)不能被確保，農業發展與富麗農村如何可能，遑論永續之奢言。另以空間規劃而論，國土計畫是國家空間干預政策的制度性表現，亦即公權力透過規劃論述與工具手段之中介來成就其改善生活環境、促進均衡發展、防範災害發生之政策目標的國家行動。惟就科學園區與鄉村發展之衝突以觀，相關空間/政策規劃之善為預謀，詳為規劃，增進國民福祉之積極作用並未能有效發揮。爰此，本研究計畫旨在探討前揭政策衝突的脈絡與原因、該等衝突所導致的農業環境資源(包含農地、農村與農民)保全問題、以及相應的解決之道。儘管國土計畫法尚未完成立法，可是其高位整全的規劃視角，將有助於確保永續發展所強調的多元價值，是以本研究計畫試圖從國土計畫的面向切入，分析目前的政策、制度缺失，並提出具體的政策建議。

Taiwan’s science parks development policy aims at creating “special areas ideal for R&D manufacturing and living that place equal emphasis on environmental integrity and economic expansion. With growing high-tech ventures as their central mission, they strive to maximize the cluster effect without neglecting the need to ensure sustainable development and meet the specific demands unique to their respective communities.” Since the first science park (Hsinchu Science-based Industrial Park, HSIP) was built at 1980 and achieved great economic performance, government has set up the Southern Taiwan Science Park (STSP) in 1996 and Central Taiwan Science Park (CTSP) in 2003, respectively, and formed a “high-tech corridor” along Taiwan’s west coast, and have made a significant contribution to the Taiwan economy. In contrast to such policy claims, various problems and controversies came in the wake of the development of science parks in Taiwan. Environmental pollution, competition for resources, and land expropriation in particular. The issues or controversies like this lead to social movements such as “Land Justice Movement” and “Movement against Water Taken by the 4th phase of the CTSP.” Furthermore, in the face with Taiwan’s rural decay, the Rural Rejuvenation Act aims to achieve the goal of rejuvenating the rural areas. However, it would be impossible to attain agricultural development and a new rural prosperity and beauty if the basic production conditions, such as farmland and irrigation, on which agriculture hinges cannot be ensured, not to mention sustainable agriculture. In terms of spatial planning, besides, the national spatial plan is a form of the state’s spatial intervention through which the authority achieves the ends of improving living environment, balancing the development of regions and preventing disasters and so on. In the case of the conflicts between science parks and rural development, related spatial/policy planning seems unable to realize the effects of arrangements in advance and increasing well-being. Therefore, this research intends to investigate into the contexts and causes of these policy conflicts which lead to the issues of ensuring agricultural environmental resources, and then proposes feasible suggestions to resolve them from the light of national spatial planning.