開發案與地方的韌性治理：以芳苑鄉、二林鎮為例

Development Project and Local Resilience Governance: A Study of Fangyuan and Erlin Townships

本文以韌性理論為基礎，將開發案視為對地方環境的災害衝擊，分析彰化縣芳苑鄉、二林鎮兩地面對國光石化、中科四期兩項大型開發案之下的治理過程及其影響。本文的假定是，當在地環境面對政府由上而下推動的開發案，地方居民的反對程度高時，即代表對開發案的吸收力弱，此時，政府對開發案的回應性也應較弱，在政策佈局上從主導角色融入地方需求，才能使開發案不至於衝擊地方，導致治理的韌性受到破壞。本文認為，在芳苑鄉的案例中，即使地方的反對聲浪拒絕了國光石化設廠，但政府對開發案的積極主導，反而裂解了當地對開發案的「社區意識」與「社區參與」，並減損地方對後續開發案的吸收力；而在二林鎮的個案中，雖然地方居民對中科四期設廠並未有強力反對，但政府在當中的主導，卻未真正回應地方需求，這導致了當地面對開發案的吸收力減弱，特別是，社區在被動參與下，依然不利於在地環境對後續開發案的吸收。

Based on the resilience theory, this article regards the development project as a disaster impact on the local environment, and analyzes the governance process under the two large-scale development projects of Guoguang Petrochemical and CTSP-IV in Fangyuan and Erlin Townships in Changhua County, and their impact. The hypothesis of this article is that when the local environment faces a government-driven development project and the degree of opposition from residents is high, it means that the absorption of the development project is weak. At this time, the government should also be more responsive to the development project; integrating the dominant role into local needs in the policy layout can prevent the development plan from impacting the local area and destroying the resilience of governance. This article supports that in the case of Fangyuan, even if the local opposition rejected the development projects, the government’s active leadership has broken the ''community awareness'' and ''community participation'' in the development project. And it reduces the local absorption of subsequent development projects. In the case of Erlin, although residents did not strongly object to the development projects, the government’s leadership did not truly respond to local needs. In particular, the passive participation of the community is still not conducive to the absorption of subsequent development projects by the local environment.