從大埔事件省思我國空間計畫體系發展侷限

Abstract

2010年苗栗大埔事件係肇因於開發科學工業園區及其附隨區所致的農民抗爭，甚而引發全國迴響的「土地正義運動」。此一結果與科學工業園區及國土空間計畫高揭之永續發展目標，大相徑庭。就規劃而論，各級空間計畫是國家空間干預政策的制度性表現，旨在促進公共利益。然而在大埔事件中，相關空間（政策）規劃之善為預謀，詳為規劃，增進國民福祉之積極作用並未有效發揮，反倒是引發當地農／住民受壓迫的不平之鳴，甚而發展成大規模的社會抗爭行動。爰此，本研究借鏡「環境正義」的理論視角來理解大埔事件與土地正義，探究何以架構在整體土地規劃與管制體系內的大埔開發案，會從擴大科學工業園區的開發案演變成各界譁然的爭議事件。研究發現指出，前揭體系對此事件之發生有著關鍵性的作用，因其運作未能涵容土地的多重意義以及人與土地之間的複合關係，致令農／住民在承認、程序、分配以及能力面向上承受不公對待。

The 2010 Dapu incident was a peasants' protest against developing a science-based industrial park and its adjacent areas, which resulted in the Land Justice Movement, nationwide. Such a consequence is a notable conflict with the very goal of science-based industrial parks policy and national spatial planning, that is, sustainable development. Spatial planning at all levels is the state's spatial intervention actions aiming at improving public interests. In the Dapu incident, however, the very goal of spatial planning had not been attained but caused local people's resistance to oppressions, which then became a large-scale social movement. This study takes the point of view from Environmental Justice to understand the Incident and the meanings of Land Justice, as well as to investigate into the development case. This article finds that the spatial planning system is the key to the Incident. This is because the system's practices do not take the multiple meanings of land and the multiple relations between humans and land into account so that peasants/residents have been treated unfairly in terms of recognition, procedure, distribution and capacity.