立法委員與臺灣的農業問題和農業政策：立法委員農業質詢的內容分析1953-1982

LEGISLATIVE MEMBERS AND TAIWAN'S AGRICULTURAL PROBLEMS AND STATE AGRICULTURAL POLICY:A CONTENT ANALYSIS OF AGRICULTURAL QUESTIONS IN LEGISLATIVE YUAN, R. 0. C, 1953-1982

本文旨在探討卅年來立法院委員對光復後在臺灣實施的農業政策及農業問題所做的種種反應。資料來源是立法院公報中的農業質詢內容，依質詢所涉及的農業問題內容和質詢取向加以分類整理，並就長期趨勢和農業政策分期（1953-1972；1973-1982）分析質詢內容的大概及其演變情形。同時也考慮質詢與質詢者背景的關係，諸如籍貫、黨籍、教育，是否為增補選及學經歷是否與農有關等。最後，並以質詢10次以上的立委視為立法院中的‘農業辯護者’（agricultural advocates），共有24位，其質詢次數佔全部總數的61.02%。本研究重要的結論包括：1.立法院對臺灣農業問題的重視，1969-1970可以說是為轉捩點。1973-1982這一時期的立委農業質詢次數就佔了全部質詢總數的80.81%。2.在前一時期當中，立委質詢的重點集中在土地、生產、技術等生產層面，到了後期則轉向‘多樣化’，而且對於農業政策本身的問題也開始做比較深入的批評。也較能掌握臺灣農業問題的核心和癥結。3.立法院在組織成員上的轉變與更替，亦即增補額立委的加入，對於上述農業質詢在次數、內容、和取向的改變，有相當重要的因果關係。4.新增額委員的另一項功能是將臺灣的農業問題，從‘地方性的局部問題’提昇到，‘國家性的政策問題’。5.自1973年以後，立法院中的農業質詢雖然在量在質上都有改變，對農業政策的反應和批評也更為剴切和直接。但是，經過10年的‘摸索’和‘過渡’，臺灣的農業政策依然無法有脫胎換骨的結果。這顯示，立委的農業質詢對農業政策的根本轉變，還是有其限制性。

This paper presents the result of a content analysis of the questions on Taiwan's agricultural problems and state policy towards agriculture in Legislative Yuan, R. O. C. from 1953 to 1982. Over the thirty years period all the agricultural questions raised by legislative members are analyzed in terms of the contents of specific issues concerning agriculture and the directions to which those questions are addressed. In addition, two phases of state policy on agriculture are identified: 'squeezing policy' (1953-1972) and 'policy in transition'（1973-1982) and that serve as another analytic spectrum to analyze the differences among questions raised during the respective phases. The backgrounds of legislative members are also used to see the possible relationships between the questions and the questioners. Twenty four members are thus identified and considered to be the 'agricultural advocates' in Legislative Yuan. Among the findings of the study, the followings are quite significant: 1. Judging from the frequency and quality of questions on Taiwan's agriculture in Legislative in the past thirty years, the year 1970 is considered as a 'turning point.' Questions raised beween 1973 and 1982 contribute 80.81% of all questions over the whole period of 1953-1982. The questions are also much more policy directed and sharper in their criticism on state agricultural policies. 2. The organizational change in Legislative Yuan from 1969 and onward recruiting new members from Taiwan area accounts for the above quantitative and qualitative changes in agricultural questions. Those new members directly elected from Taiwan voters seem more sensitive to local and indigenous issue such as agricultural and rural problems and that reflects in their activism in advocating changes of state policy on Taiwan's agriculture. In a way, the new members have in fact transformed the nature of agricultural problems from a local issue to a national policy one.