Over his three-plus years in office, Taipei County Magistrate Lin Fong-cheng has heaved many such sighs.
Nevertheless, he is quick, also, to concede, in the words of Wu Chih-hui (1865-1953, one of the founders of the Republic of China): "If there were to be no difficulty attaining solutions, why would you be needed?"
Among Taiwan Province's 21 self-ruled counties and county-level cities—16 counties and Chilung, Hsinchu, Taichung, Chiayi, and Tainan special cities (Taipei City and Kaohsiung City, as major metropolises, are on an equal governing level with the Province)—Taipei County is unique in character; many special features add great burdens to the county's administration.
The major complexities arise from the county's geographical position: At the north tip of Taiwan, Taipei County encompasses two formidable urban areas- Taipei, the main seat of government and commerce, and Chilung, one of the island's major international port cities.
Taipei County Magistrate Lin Fong-cheng—A combination of "love and guts."
"Living in Taipei County is a bit like living next door to a very wealthy neighbor. Taipei County residents continually make undue comparisons with standards in Taipei City. Looking at practices and facilities in the city, they expect an equivalent from the county government. We cannot blame them for wanting what the city offers, but they are under another, less prosperous jurisdiction," notes Lin.
Actually, Taipei County and City are far from comparable.
Taipei County, at 2052 sq. km., is the biggest county in Taiwan Province, and about 7.6 times larger in area than Taipei City. As of June 1985, the county's population had reached 2,620,000, about 200,000 more than Taipei City. However, since Taipei City is administratively equal to the province, it is one level higher than Taipei County and enjoys major revenue sources not available to counties. Thus, the annual general budget for the county, at about NT$12,500 million (US$312.5 million), is only one fifth that for Taipei City. In fiscal year 1985, the city's education budget alone was more than the county's total budget. A like condition exists in staffing: the city's construction management department, for example, is about twelve times the county's.
When the ROC national government relocated to Taipei in 1949, the city grew rapidly. It was upgraded in 1967 to a special municipality, like the provinces, the next administrative echelon below the Executive Yuan (Cabinet). Taipei City and County were the first population centers on the island to feel the full impact of the ROC's "economic miracle" and the ensuing urban population tide.
Between 1963 and 1983, the average population growth rate for the overall Taiwan area was 3 percent; Taipei County's annual population growth rate in this period was never lower than 9 percent. Some 1.06 million more county residents have been counted over the past ten years-an average growth rate of ten thousand people per month. Indeed, the county's population influx is about two times its natural growth. To date, about 60 percent of the population has moved in from other counties and cities.
More job opportunities and rapid county development potential attract youth, especially, to the county and, indeed, the influx is composed chiefly of persons in the 15-40 age group.
Most of the newcomers have concentrated in the county's six subordinate cities-Panchiao, Chungho, Yungho, Hsintien, Sanchung, and Hsinchuang. As a matter of fact, about 70 percent of all county residents now live in the six, which account for only one tenth of the total county land area.
As may be expected, the six subordinate cities, as geographically close neighbors to the metropolitan basin, have become Taipei City satellite towns, and many of their residents commute back and forth.
Some of the six are even more populous than the province's independent, county-level cities. For example, Panchiao city now has 470,000 residents, more than county-level Chilung city (350,000); but the annual budget for lower-level Panchiao is only about NT$400 million (US$10 million), about one eighth of Chilung's.
The six subordinate cities have been described by local observers as exactly like "suddenly overweight middle-aged persons, demonstrating many of the infirmities of the grossly obese."
There are traffic disorders, unlicensed street peddlers, problems of public order, rising environmental pollution, and so forth. Public facilities in the booming satellite cities cannot accommodate population growth.
The sharp increase in school-age children is one of the heaviest burdens for the county administration. In fiscal year 1985, of the NT$11.2 billion general budget of Taipei County, NT$6.1 billion is earmarked for education. More is needed. Insufficient physical and staff resources, two-shift schooling, and only increasing burdens in sight have long tested the county government.
The six remaining towns and 17 villages of Taipei County confront problems linked with population changes ranging from stagnation to losses. Unbalanced development between the rapidly urbanized areas and the more rural towns and villages, and the co-existence of modern-urban and traditional-rural societies are salient characteristics of the overall Taipei County population.
About four years ago, when Lin Fong-cheng campaigned for the office, his electioneering slogan was, "For First-Class Citizenship, First-Rate Living Standards." Lin swept to victory with 558,263 votes, the highest ever garnered in a race for the top county spot any where in the province.
In an interview with the Free China Review, County Magistrate Lin discussed the county's "household affairs" as a parade of trials and victories:
FCR: Taipei County and City are mutually dependent and constitute, in fact, a "Big Taipei Metropolitan Area." What kind of role does Taipei County play in this complex?
Lin: Geographically, Taipei City and County are almost continuous. In the course of urbanization, the county and city have thus formed a common living focus, which has been confirmed via a mutual interflow between county and city in schooling, employment, and social activities.
In the past, the county did not have its own development plan, but passively followed in the wake of the city: Where the city lights reached, the county was illuminated.
Due to its special governmental status and relatively ample funds, Taipei City is ahead of the county in many aspects. However, it is the nature of urbanization that a city reaches out to its limits as it develops; when the saturation point is reached, the metropolis stretches its development tentacles into the nearby outskirts. The expansive area and abundant resources of Taipei County will inevitably fuel city expansion into the future.
Three-plus years ago, when I assumed this office, one of the top priorities of my administration was, "bearing long-term development in mind, to establish a common living center-a coordinated metropolitan area in action." In order to approach an ideal in which all administrative districts of the greater metropolitan area would share both resources and problems, we have actively coordinated with Taipei City.
Take, as an example, the construction of the Er Chung Flood-Control System, a major portion of the Taipei metropolitan area's flood-control works: Its institution required prior removal of 5,000 homes; more than 600 hectares of lands are involved, an area larger than all of our Yungho city. Although the government dedicated itself to fair compensation and resettlement help for the removed families, still, many protests and petitions resulted from people wanting more, or who were determined never to move. Taipei County and its citizens have devoted great determination, sacrifice, and cooperative effort toward completion of the project.
Recreational development is a major priority —Here, a view along Feitsui Bay, which indents the north county coast.
Another example involves construction of the new Feitsui Reservoir in Shihting Village, right in the center of Taipei County, to provide more water for the greater Taipei population. Prior to the beginning of construction, lands and structures around the projected dam were bought up. After completion, in order to prevent water pollution-to maintain the quality and sufficiency of the new water sources-an area around the reservoir of about 700 sq. km. (about three times that of Taipei City) will be under restricted development control. The county is again asked to playa magnanimous role.
In other major engineering projects, such as the Chih Tan Water Treatment Plant, mass rail transit, power plants, etc., the county is playing similar roles.
FCR: Has Taipei County asked for or accepted due compensation?
Lin: In order to help develop the greater Taipei metropolitan area, Taipei County has been subjected to unprecedented property losses. Therefore, it has sufficient reason to petition the national and provincial governments to devote more attention to county needs. There should be new development to make up for the lost properties, and as compensation for all residents.
There has been positive response. The central and provincial governments will invest more than NT$100 billion (US$2.5 billion) in facilities in Taipei County and nearby areas. Among the Fourteen Key Projects identified by the central government, eight affect Taipei County: the second freeway in the north, a third provincial highway, the upcoming mass rail transit facilities, the follow-up flood-control work, development of northeastern scenic seashore areas, a metropolitan area-wide program of garbage disposal, an expanded medical facilities network, and various grassroots development plans. We expect that Taipei County will be a more equal neighbor of Taipei City after these projects are completed in 1991.
FCR: Limited budgets and inadequate financing have always been major aspects of Taipei County administration. Would you outline the fund sources of our self-ruled counties and cities? Are there plans to alleviate the county's present financial straits?
Lin: Under the current system, the nation's main income sources are divided among various national, provincial, county, and village/town/city taxes like a cup of water to quench many great thirsts. The main tax sources for counties are the property and property-transaction taxes.
But the best of the old must be preserved to give deeper meaning to the new—Here, in sharp contrast, the old Lin Family Garden, against a modern setting.
I have been frequently noted to say that "there will always be a way to do a thing: the rich have a way, and the poor have another." Unquestionably, the annual budget of Taipei County cannot meet its actual needs. My administrative remedy, as much as possible, is "to use planning to win over funding problems, to drive hard to gain results, and to rely on harmony as the basic foundation for progress."
For instance, our annual budget for county economic development is just NT$1 billion (US$2,500,000). But during the past three years, we have actually invested more than NT$50 billions, most of the funds coming to us in the form of central and provincial governmental subsidies.
Last year we delivered our "Engineering and Construction Plan for the Taipei Suburban Area" to the central government. In just two months, the whole plan was approved by the Executive Yuan's Council for Economic Planning and Development, including total funding of about NT$18 billion, mostly subsidies from the central and provincial governments.
Of course, we hope that in due time, the relevant laws and regulations governing local governmental finances will be revised in accordance with the actual situation—perhaps a new governmental financial structure based on each county's population. But until such changes are legislated, in my opinion, it is wiser to draw up concrete plans projecting use of upper-governmental subsidies than to blindly cry for money. Funds from the central and provincial governments can be used everywhere, but those who can submit concrete plans should be given priority.
FCR: More than half of the county's limited annual budget is always dedicated to education, but continued sharp increases in school-age children and the raising of age levels for compulsory education have almost overwhelmed the resources. Are there concrete steps under way to improve the situation?
Lin: Of the 600,000 students in Taipei County-about one fourth of the whole population—those generated by compulsory education total 450,000, the largest number for any Taiwan area county. Yes, education expenditures have always been the heaviest burden for our county government.
The increase in the number of classes for primary school children in Taipei County has always been 50 percent or so of the entire province-wide total. And as for junior high schools, while the province total decreased by two classes last year, Taipei County added 78 classes. As you know, the Republic of China provides 9 years of free public education for all school-age children in the county, and most primary and junior high schools are public schools.
Although the education burden is ever heavier, I really think it's a "sweet burden;" it is so deserving an investment. Still, over the past three years, I have constantly stressed to the central and provincial governments that the educational problems of Taipei County are, indeed, problems for the entire province-and national problems as well. Clearly, the two-shift teaching system in some of our primary schools is not generated by Taipei County itself, but by the influx of population from other counties and cities.
Our appeals have been heard. Taiwan Governor Chiu Chuang-huan recently agreed to help solve the overload problem of our schools. Within two years, the two-shift system will be cancelled, and in five years, the problems of insufficient schools and classes will be overcome. And Premier Yu Kuo-hwa has agreed to subsidies, in fiscal 1985 and 1986, of NT$300 million (US$7.5 million) per year to help solve the county's education crisis. This is a pioneer case of direct central government subsidies for a county government.
One of our planning solutions involves new suburban schools. A first, trial junior high school under this plan, in Sanhsia, will accommodate students from Panchiao city in addition to the local students. The environment there is excellent, and the land prices are cheaper. Using the funds saved on the real estate, the school can be well-equipped. The students will commute by school bus, or live in student dormitories.
According to a survey of Panchiao parents, most support the plan. The school is scheduled to open next year. If the basic plan succeeds, the educational profile of Taipei County's junior highs will have a new look.
FCR: The sharp contrast resulting from the growth and urbanization of the six subordinate county cities and the population outflow from the rural villages and towns is getting quite serious. Do you have any ideas affecting the trend?
Lin: Well, freedom of movement is the constitutional right of the people of our country. And, it is really an honor that Taipei County attracts so many people to live here. We cannot forbid a natural flow of population. However, we can and will use various land development plans and transportation convenience networks to channel a more even population distribution.
When I took office as County Magistrate, I invited professors from the two universities located in the county Fu Jen and Tamkang—experts from the Council for Economic Planning and Development, and local leaders to discuss the county's comprehensive development plan in coordination with the "Taiwan Area Land Development Plan" and the central government's middle and long-term plans. Our comprehensive development plan is divided into three phases, over a total completion period of 15 years.
Moving factories to suburban areas is an important part of the plan. There are now more than 13,000 factories in the county, and thousands more small, unlicensed factories in housing districts. The county government is, on the one hand, improving transportation networks and establishing industrial parks at such suburban villages and towns as Wuku, Linkou, and Tucheng; and, on the other hand, encouraging factories to move to the new industrial parks, while enforcing the existing regulations to eliminate unlicensed factories.
In those villages and towns where the population is static or even declining, we are increasing public investment to help spur local industry, providing more job opportunities and thus stemming population outflow.
The nerve center of the Taipei County administration and headquarters for the County Magistrate.
FCR: Can you describe the powers of County Magistrate? What is your relationship to the County Council?
Lin: The laws stipulating local self-government in Taiwan, as legislated, regulate the ways county affairs are handled.
The powers of our elected county governments are exercised through professional staff via the control of funds.
Except for my personal secretary, all of our county government personnel must meet civil service qualifications. Daily routines are systematized. All that saves the Magistrate from special interest pressures. Also, the handling of funds is audited by the County Council.
County Councilmen and Magistrates are all elected by and for the people. Our targets should be identical. As a matter of record, over the past seven Council sessions, we in this county have seldom been at odds—I should thank the former Magistrates for not producing local factions. The harmonious relationship between the Taipei County administration and Council is our pride, and fits neatly into my ideal of "creating harmony to promote progress."
FCR: You have registered your intention to stand for reelection, at the end of the year, for another four-year term; what is your election message this time?
Lin: It is really just about time for me to reexamine the results of my first term as Magistrate and to review plans for the future. Since I am a Kuomintang (Nationalist Party) member, I will coordinate the substance of my election campaign with party policy. Most of all, I will face the election quietly.
That is, I really think that an elected official-such as a county magistrate should have "the heart to really love the people, and the guts to really enforce the laws." Compromising the two positions demands intelligence. An elected official cannot isolate himself from the citizenry, but if he abjectly curries favor with the people, his administrative powers will decay.
In my first term of office, I have tried my best to create an effective administrative framework. With such an institutional structure, the next Magistrate, be it myself or somebody else, will be able to carry out his mandate more smoothly—without worrying about building up the processes.