地方政府產業發展能力的挑戰與優化對策
戴元峰、田玉珏
《摘要》
中央政府制定國家發展戰略，推動產業創新政策、發展重點產業，其中有效達成目標的關鍵之一是在於地方政府有能力配合推動地方產業發展。為瞭解22個縣市地方政府的產業發展能力，本研究採取探索性研究，探討：地方政府推動產業發展和哪些能力相關？我國地方政府推動產業發展在能力施展上遇到哪些挑戰？有哪些可優化對策？檢視文獻後，本研究整合策略能力、靈活應變能力、資源與管理能力，及政策能力作為地方政府產業發展能力分析架構，透過22個縣市中具產業發展推動實務經驗的領導官員的深度訪談資料分析，詳細檢視四種能力在實際過程中遇到的各種挑戰和有效施展的對策。從研究發現來看，優化這些能力有助於地方產業發展的推動，但是地方政府若要有效獨力推動複雜的產業發展工作不易，許多的對策需要中央和外部專家學者的支持，過程中靈活運用各種模式與策略來和內部、外部各方行動者之間互動、協調與合作。中央能夠重視地方的意見或需求，強化溝通鏈結與共同參與，有助於國家重大產業政策的推動成效。未來可針對個別縣市展開個案調查，具體研究不同能力之間的關聯情況，也可在四種能力構成的分析架構基礎上，制訂地方政府產業發展能力的評估工具。本研究分析的結果，可提供中央與地方在產業政策推動、文官培訓、府際合作、政策溝通的參考。
[關鍵詞]：產業發展能力、策略能力、靈活應變能力、資源與管理能力、政策能力
Challenges and Optimization Strategies of Industrial Development Capabilities for Local Governments
Yuan-Fung Dai, Yu-Chueh Tien
Abstract
The central government formulates national development strategies, promotes industrial innovation policies, and develops critical industries. The key to effectively achieving goals is the local governments’ capabilities to promote the development of local industries. This study adopts exploratory research to investigate the practical experience of local governments in promoting industrial development. The research questions include: What kind of capabilities are related to the promotion of industrial development by local governments? What challenges did local governments face in developing such capabilities? Which strategies can optimize them? Based on the literature, the author proposes that strategic capability, dynamic capability, resources and management capability, and policy capability constitute the industrial development capability of local governments. The semi-structured in-depth interview method was used to interview local officials with practical experience. This research finds that optimizing these capabilities can help drive local industry development. However, it is not easy for local governments to effectively promote complex industrial development alone. Many efforts require the support of the central government and external experts and scholars, and various models and strategies are used flexibly to interact, coordinate, and cooperate with internal and external actors. When the central government can pay attention to local opinions or needs, strengthening linkages, and joint participation, it will help promote critical national industrial policies. In the future, case studies can be used to explore the relationship between different capabilities, and based on the four capabilities, the capabilities evaluation and development tools can be made. The analysis results can provide reference to the central and local governments in industrial policy promotion, civil service training, intergovernmental cooperation, and policy communication.
Keywords: industrial development capability, strategic capability, dynamic capability, resource and management capability, policy capability