雲林縣永續發展的指標建構與因應策略

Abstract

本研究目的希冀發掘雲林縣的永續發展優劣勢、機遇與挑戰。惟為達成此目的，須先建構含括雲林縣在內臺灣22個縣市的永續發展競爭力指標（SDCI），進而量化評估雲林縣的的優勢、劣勢、機會威脅，最終徵詢與匯整專家學者的寶貴意見，提出雲林縣永續發展的因應策略。\r\n本研究發現主要有四：一是永續發展與城市競爭力評估指標，逐步走向整合。特別是，《永續發展目標地方自願檢視報告》（VLR）的問世，更證實建構永續發展競爭力指標（SDCI）的必要性，此亦凸顯本研究切合國際趨勢。惟各城市攫取VLR的評估指標不盡相同，削減跨縣市的可比較性，且上述指標體系都沒有匯整成單一指標，且不利直觀檢視。\r\n二是利用主成分分析（PCA），建構臺灣22個縣市永續發展競爭力指標（SDCI），含括10大構面77個細項指標。PCA是一種統計技術，客觀賦予各細項指標權重，且透過多個穩健性測試──內部一致性信度（Cronbach α）、多變量配對組T檢定（Hotelling`s T2）、Kaiser-Meyer-Olkin（KMO）取樣適切性統計量、Bartlett球形檢驗，以及建構效度，並援引Chen and Woo (2010)與Tung, Wang and Yeh (2012)進行調校。\r\n實證結果顯示，2019年雲林縣城市永續發展競爭力指標位居全國第14名，居全臺灣中間區段。其中,環境競爭力指標位居全國第八，是拉動整體排名最關鍵的因素。治理、經濟、教育與科技，以及文化競爭力表現持平，皆居全國第12名。雲林縣治安與基礎建設競爭力成績相對遜色，分別為全國第15名與16名。至於人口、健康與醫療，以及社會福利更有待大力推動,皆屈居全國第19名。準此,不難理解，雲林縣於2021年9月17日召開地方自願視論壇，首波便鎖定「大健康產業」，此凸顯實證結果饒富政策意涵。\r\n從時間趨勢來看，雲林縣城市永續發展競爭力指標，由2010年24.0分逐步攀升到2019年的27.9分。2019年雲林縣城市永續發展競爭力指標，位居全國第14名，與《天下雜誌》及《天下雜誌》的排名相近（13名）。換言之，本研究建構的SDCI足以反應現實，且操作方法更具便捷性、低成本，或可作為全臺VLR的基礎框架。此為第三個研究發現。\r\n第四，匯整雲林縣各局處的訪談結果，當前雲林縣政府的永續發展競爭力措施，主要有三：招商引資且瞄準綠能、健康與文化產業。惟根據最終權重（final weught）可知，環境、文化、健康與醫療，最終權重分別為0.040、0.008與0.035，三者合計0.083；反之，基礎建設、政府治理與經濟的最終權重分別為0.132、0.387與0.152。換言之，雲林縣若考量後者，SDCI將可獲得更大程度的躍升。\r\n據此，本研究建議，雲林縣政府成立雲林高鐵經濟特區。其經濟意涵有三：一是給予提供生產要素瓶頸產業與新與產業發展稅賦抵免與優惠，從而吸引廠商入駐。二是開闢高教專區，以一定年限免租金提供國內外大學在此地設立分校、分院或產學合作中心。三是賦予更多財政、人事與主計權力，規劃雲林高鐵站與臺鐵之間的捷運，增進青年赴雲林工作的意願。\r\n此外，雲林縣政府各局處的訪談結果指出，雲林縣城市永續發展競爭力提升關鍵在於人口規模。人口規模直接影響經濟成長動能與自籌財源。故雲林永續發展競爭力的提升，尚可結合地方創生。其中，地方創生後續增進舉措有三：一是擴大引才範圍，放諸國際並廣納多元對象。二是加強與大學產學合作，並透過在地工協會協助宣導。三是建立城市品牌，聚焦雲林縣的慢活生活。\r\n永續經營的政策建議有四：一協助當地永續經營,特別是系統配套，避免吸引人潮，却無助於在地消費。二協助廠商尋找供應鏈，提高在陸臺商設廠雲林的誘因。三是連接在地金融與產業，活用當地資金於產業升級與轉型。四是以人工智慧(AI)克服人口外流問題，進而吸引年輕人返鄉工作。\r\n最後，綠能低碳的政策建議有四：一是從使用或碳排放的角度切入，釐清各縣市的責任；惟這有賴中央政府的統籌。二是相對的產業轉型，特别是雲林的綠能產業園區，避免碳交易稅壓垮廠商營運。三是思考臺灣整體能源戰略，或建立滾動式討機制――未來再生能源的科技提升後再排除核電。四是綠能低碳仍須因地制宜。

Combining qualitative and quantitative research, this research analyzes Yunlin County`s sustainable development competitiveness and prospects, and then develops supporting measures for the central and local governments in order to help the sustainable development and improves the urban competitiveness of Yunlin County.\r\nThere are three main findings of this research: First, at present, all countries are actively investing in the research of sustainable development competitiveness, specifically in Voluntary Local Review. However, a systematic and scientific indicator system has not yet been formed\r\nFor this purpose, this study uses principal component analysis (PCA) to construct sustainable development competitiveness index (SDCI), including Yunlin County and 21 counties and cities. Empirical results show that Yunlin County SDCI ranked 14th in 2019, located in the middle of Taiwan. Among them, the environmental competitiveness index ranks eighth, which is the most critical factor driving the overall ranking. Governance, economy, education and technology, and cultural competitiveness are flat, ranking 12th.\r\nYunlin County`s public security and infrastructure construction competitiveness performance is relatively inferior, ranking 15th and 16th respectively. Population, health and medical care, and social welfare competitiveness need to be vigorously promoted, all ranking 19th. For this, it is not difficult to understand that Yunlin County holded VLR forum on September 17, 2021, and the first wave targeted the “big health industry”. This is the second finding of this study, which also highlights the rich policy implications of the empirical results.\r\nIn this context, this study interviewed scholars and experts, and summarized policy recommendations for enhancing the sustainable development competitiveness of Yunlin County.\r\nThere are three follow-up enhancement measures for Regional Revitalization: First, expand the scope of talent introduction, put it internationally, and broaden diverse targets. The second is to strengthen industry-university cooperation with universities and assist in publicity through the Local Workers Association. The third is to establish a city brand, focusing on the slow life of Yunlin County.\r\nSecondly, there are four policy recommendations for sustainable operations: First, assist local sustainable operations, especially system support, to avoid attracting crowds, but not conducive to local consumption. The second is to assist manufacturers in finding supply chains and increase the incentives for Taiwanese businesses to set up factories in Yunlin. The third is to connect local finance and industry, and utilize local funds for industrial upgrading and transformation. Fourth, artificial intelligence (AI) is used to overcome the problem of population exodus and attract young people to work in their hometowns.\r\nThirdly, there are four policy recommendations for green energy and low carbon: First, from the perspective of use or carbon emissions, clarify the responsibilities of each county and city; but this depends on the central government`s overall planning. The second is the relative industrial transformation, especially the green energy zone in Yunlin County, to avoid carbon trading tax overwhelming manufacturers` operations. The third is to think about Taiwan`s overall energy strategy, or establish a rolling review mechanism - the elimination of nuclear power after technological advancement of renewable energy in the future. Fourth, green energy and low carbon still need to be adapted to local conditions. This is the third finding of this study.\r\nFinally, It is recommended that the Yunlin County Government establish the Yunlin High-speed Railway Special Economic Zone, and establish the Yunlin High-speed Railway Special Economic Zone Administration and Yunlin Development Company, futher to open up higher education zones and venture capital parks, and then to connect the central and southern parts. At the same time, Yunlin should plan the MRT between Yunlin High-speed Railway Station and Taiwan Railway, and express roads and light rails between towns and villages.