海角變樂園？台灣東北角海岸的遊憩化治理

Abstract

本研究旨在探討台灣東北角海岸的轉型。藉著對遊憩化治理體制的分析，本文關照了近年遊憩化發展、土地開發爭議、以及居民的行動與回應等社會動態，從而概繪地方社會的形成輪廓與海岸空間變貌。 首先，本研究以文本分析方法，考察了1980年代迄今東北角的地景變遷，將不同治理模式（法源基礎、土地開發程序和興建旅館、遊憩設施）與其相應的時空脈絡、治理主軸及治理要項類型化。透過海岸發展歷程的爬梳整理，可以發現東北角海岸治理類型，受到各時期政治與社經脈絡影響，可概分為五個互有疊合的歷史階段：漁村漁業發展時期、戒嚴禁海時期、水泥化人工海岸時期、「風景特定區」化的海岸治理時期，以及土地開發為主的資本化海岸時期。 其次，本研究通過參與觀察與深度訪談方式，從海岸遊憩化治理的邊緣破綻中，掌握地方轉型的結構性動力與機制。研究設計分別聚焦於兩大區域不同的治理情境，一處是以地方政府為主要統治力量的宜蘭縣頭城鎮濱海，它以「振興地方」之政策修辭獲得在地認同，但也產生了海岸「國有地私有化」的爭議；另一處是以中央政府主導治理的新北市貢寮區，它在福隆海洋音樂祭等海濱節慶的快樂面具背後，隱含著核四、土地徵收與各類大型開發建設計畫等憂慮。從兩地的土地使用爭議事件及不同行動者的異質觀點中，本研究掌握到「風景特定區」中人們的日常生活處境，並辨識出涉入地方社會、資本力量、國家政策於遊憩化海岸的交會所在的，是地方派系、環保團體、漁會組織與地主階級等細微層次關聯的知識／權力壟斷。 最後，為了掌握海岸遊憩治理術的運作邏輯與因果關係，本研究提出「訂製娛網論」作為海岸地方權力動態與轉型機制的解釋模型；據此，本文指出海岸生產的結構化趨勢，乃是以「發展主義」作為海岸遊憩化社會組織的動力機制。「發展主義」這股暗流驅動了觀光政策修辭、遊憩化的具體技術，以及意象建構等物質性和符號性的網羅，這個網羅不僅對海岸生態環境造成創造性破壞，也將當代社會困於其中。本研究發現，「訂製娛網」作為海岸自然─社會生產的轉型機制，進一步揭示了海岸遊憩化治理術是以「保障安全」為主題的部署，其目的不只是為了治理土地和獲得金錢，還是為了治理人口並獲得權力。

The purpose of this paper is to explore the transformation of Northeast Coast in Taiwan; the thesis focuses on taking critical perspectives of governmentality, reflecting the process of recreation, land development, resistance from the local society, and the impact on local people''s life-world. Initially, through text analysis method on different governance models and its temporal context, this research summarizes several types of the Northeast Coast landscape changes from 1980s to date. The five overlapping historical periods about the transformation of Taiwan''s Northeastern Coast: fisheries development period, ban on maritime trade period, concrete coast period, "National Scenic Area" period as well as capitalized coast period were all influenced by political and economic processes. Next, the research emphasizes on two areas of different governance contexts, by participated and in-depth interviews to capture the local context and social transformation mechanisms. One is Toucheng coastal area of Yilan County, which ruled by the local government as the main force. Although it is recognized by the "local revitalization" policy rhetoric, it brings the side effect - the controversy of “privatization of state-owned land”. The other is Gongliao District of New Taipei City, which is dominated by the central government governance. There are several worries, the nuclear power issues, land acquisition issue and various debatable large-scale development projects hidden behind the happy mask of “Ho-hai-yan Rock Festival” and mass seaside festival. From these two cases, this research describes the “National Scenic Area" people''s living situations and further identifies the macro and micro level in the recreational governmentality of Taiwan''s Northeast Coast. As a conceptual interpretation, this research proposes "customized entertainment network theory" to point out the knowledge/power interaction and transformation mechanisms in seaside. The illusion of development resulted in a creative destruction and trapped contemporary society. Obviously, it reveals that the purpose of coastal recreation governmentality is not merely to control the land and access to money but also to govern the population and access to power.