國際農糧體制與臺灣的糧食依賴：戰後臺灣養豬業的歷史考察

International Food Regime and Food Dependency: The Development of Hog Industry in Postwar Taiwan

本文以歷史社會學與政治經濟學的研究視角，藉由戰後臺灣養豬產業的歷史發展過程，說明導致臺灣產生糧食依賴的結構性因素。戰後臺灣的農業經濟體系納入由美國主導的國際農糧體制內，臺灣的糧食生產與消費也因此受到國際農糧體制的規約與影響。為開拓其剩餘農產品的海外市場，美國除透過出口補貼以增加其農產品於國際市場上的競爭力；另一方面則積極拓展「糧食外交」，提供各項優惠措施予他國購買美國剩餘農產品。此外，美國更以改善國民營養、提高動物性蛋白質攝取量為由，鼓勵其他國家配合發展畜牧業，進而增加對美國飼料穀物的需求。為配合美國推銷其剩餘農產品，中國農村復興委員會於1960年代開始推動「綜合養豬計畫」，經建單位亦積極扶持飼料工業發展。其後，國際農糧企業更紛紛來臺投資設廠。臺灣的養豬業因此逐漸擺脫傳統農家副業經營的型態，開始轉型為所謂的「現代化養豬產業」。然而，以玉米飼料為基礎所發展的養豬產業，一方面造成傳統的甘藷飼豬方式迅速消散與甘藷產量的遽減；另一方面則導致臺灣對美國飼料穀物產生嚴重的結構性依賴。

From the perspectives of historical sociology and political economy, this paper examines the development of hog industry in postwar Taiwan to illustrate the historical and structural factors that lead to food dependency of Taiwan. In the aftermath of World War II, the agricultural economy of Taiwan became incorporated into the international food regime dominated by the United States. Accordingly, its food production and consumption were regulated and influenced by the international food regime. To expand overseas market for its surplus agricultural commodities, the U.S. government not only implemented the export subsidy and concessional sale programs, but also promoted international reliance on U.S. feed grains exports by encouraging other countries to develop the husbandry industry. From the 1960s, the Sino-American Joint Commission on Rural Reconstruction initiated the 'Integrated Swine Program.' In the meantime, feed industry was aggressively developed by the government and international agribusiness companies began investing actively in Taiwan. Hog-raising in Taiwan was therefore transformed from a sideline business into the modern hog industry. However, hog industry developed on the basis of corn feed led to the immediate disappearance of the traditional sweet potato feeding and the dramatic decline of the sweet potato output on the one hand. On the other hand, it caused Taiwan to heavily depend on the U.S. feed grains.