當西元1683年滿清派遣鄭氏降將施琅征服臺灣鄭氏，消滅心腹大患後，清廷的表現是無意佔有臺灣，所以臺灣的棄留問題曾在朝廷內討論了8個月之久，最後才由康熙皇帝決定將臺灣納入版圖治理。滿清領臺後，直至光緒年間割讓臺灣於日本，雖然吏治不良，然而治臺官員中仍有部分循吏者流，他們在治理臺灣過程中留下深遠的影響。據此，本文著重康熙年間較具代表性的治臺人物之治臺策探討，依照治臺時間順序為時間軸，觀察這些官員士大夫的治臺思想內容與施政措施的影響面，並進而解析其治臺策略的內涵。
內容計分成五章。第一章緒論，說明研究動機與成果回顧，兼及研究方法與章節架構。第二章至第四章，以康熙朝領臺前及領臺後影響清廷治臺思想與政策變化的人物為探討對象。第二章先專章討論棄留臺議的歷史發展，探討姚啟聖、施琅與李光地等有關臺灣棄留的策論。第三、四章，著重在康熙領臺後的實際治理層面，以康熙43年為分界線，分為前期與後期論述。第三章，以康熙23年至康熙42年為前期，探討治臺人物季麒光、高拱乾等的治臺思想與政策影響。第四章部分，以康熙43年至康熙61年為後期，探討陳璸、周鍾瑄、陳夢林與藍鼎元等的治臺思想與政策影響。第五章結論，則針對康熙年間的治臺策作歸納整理研究，並提出其歷史意義與政策分析之看法以作為總結。
在研究資料方面，以治臺人物有關治臺奏議、公移文告及文集等文獻資料為基礎研究重點，透過其治臺議分析其治臺思想，並及其施政作為與影響。在研究材料的取用上，以臺灣方志有關藝文志記載，旁及相關人物的文集、采訪冊、人物傳記、年譜等，輔以官方的檔案資料、起居注、實錄記載、時人記臺的相關詩文，以及近代學者的研究成果為輔助資料。
研究認為：有關臺灣棄留的見解，較早提出留臺主張的是福建巡撫姚啟聖。姚啟聖的治臺觀念在於開拓臺灣後的歲收錢糧可支應駐臺兵丁之所需，再者，臺灣納入清廷版圖，對東南沿海治安有正面的助益，若置臺灣於不顧則將造成沿海「甫定甫亂」的不良後果。然而，姚啟聖的留臺意見當時並未被康熙皇帝採納。比較有影響力的是施琅的意見。施琅以臺灣的地理位置及防守的重要性，不僅指出棄守臺灣所存在的困境，重點更在於一旦棄守臺灣，則臺灣勢必又成「亂源之地」，不僅只是反清勢力的問題，還涉及西洋外力入侵的威脅。施琅之論述與觀點促使康熙皇帝慎重思考臺灣去留。然而清廷政治上的顧慮卻尚未解決。有關臺灣的棄留問題與治臺政策，康熙皇帝頗多徵詢李光地。從李光地表面所陳述的言論意見來看，李光地似乎是主張棄臺的。但吾人由其與康熙皇帝的對話內涵來判斷，其內在動機顯然是偏向於留臺治理。最後，臺灣的棄留遂在李光地「微辭諫主」下，由康熙皇帝一言定案。
李光地治臺策對朝廷影響最大者為班兵制度。施琅曾向朝廷建議「請以萬人永戍臺灣」，並且希望在臺灣實施屯田政策。比較施琅與李光地的治臺意見，施琅是主張「鎮守之官」三年一易；而李光地卻進一步主張連同「戍兵」也三年一易。李光地治臺思想是「寧不辭勞費」，而反映在政策上則是「戍兵三年一換」來反制施琅「萬人永戍」臺灣的建議，目的無非避免臺灣再度成為清廷海外的威脅勢力。班兵制度的設計，雖然能解決班兵據臺叛亂的假設性問題，但是因班兵素質的低劣及制度不良，使移民社會性格的臺灣，不僅地方治安敗壞，而且民變不斷，遂成為難治之區。此外，李光地治臺言論，還影響治臺人事制度的規劃與治臺人選安排。
在康熙領臺年間，繼施琅、李光地後，提治臺策者有首任諸羅縣知縣季麒光。季麒光提議在北臺地區駐兵設防，為治臺官守中對北臺形勢重要性有所認識者。季麒光為淨化地方治安，尚主張為駐臺班兵預備兵餉與築城防衛，並且落實保甲制度。他還勇於反映臺灣百姓賦稅過重與施琅等在臺的土地與經濟掠奪，實為具有官德的治臺良吏。
在康熙四十年代前的治臺人物中，提治臺策者尚有分巡臺廈兵備道高拱乾。他重視臺灣的吏治、民生與文教的建設，並且提出治臺應注意的兩個重點，一是有關理番政策，亦即減輕原住民負擔，抑制社商對原住民的剝削。其次，是反映臺灣建城以備禦侮的迫切需要。從高拱乾的治臺策顯見臺灣土地開發以及因應糧食生產的迫切需要，其還下令禁止高利貸者重利盤剝平民，並嚴禁奸商猾吏苦累高山族原住民，頗得平民擁戴。高拱乾治臺期間，反映清廷自康熙23年領臺後，消極保守的治臺政策在康熙四十年代已面臨嚴苛的考驗，一府三縣以半線為限的狹隘治理地區已經不符合實際需求，臺灣需要更有前瞻性的治理政策。
在康熙年間的治臺史上，陳璸治臺的歷史地位是不容抹滅的。特別是其對於北臺地區開發政策的落實與奠基，是繼首任諸羅知縣季麒光提倡北臺駐兵布防論後的政策落實者。陳璸一生宦海生涯中與治臺關係非常密切，影響也頗為深遠。陳璸之治臺策有：一為文教治臺。陳璸施政頗重教化功能，如重視興建文廟、廣設社學、定季考之規，以及舉鄉飲之禮。其不僅整修孔子廟外，並創建朱子祠。除正規府縣學外，為了普及地方教化，增加更多的識字人口，陳璸還主張各坊里應該再多廣設社學。二為淨化地方治安，提倡保甲連坐。其他諸如污吏蠹役、徭役雜費等種種陋規，陳璸亦悉革去。三為革除官莊，杜絕貪污。其四，陳璸最有前瞻性的治臺策，要算對北臺地區的經營態度。五為教化為主的理番政策，其用「保障名額」的方式，鼓勵番人子弟向學，以提高番社的教育水準。
陳璸治臺後，值得一提的是諸羅知縣周鍾瑄及陳夢林。在周、陳二人治臺策中，首先言及者為一、興修水利，促進民生經濟。在康熙年間歷來治臺官守中，周鍾瑄在水利方面的建設與出錢出力是值得一提的，他不僅開風氣之先，也給臺灣百姓留下很好的官治印象，對於滿清治臺之吏治形象有正面的助益。其二為畫縣分治。周鍾瑄與陳夢林的治臺政策與思想，最重要者為保境安民、興教淑世。文教的提倡與移風易俗，方是治臺根本之道。由於周鍾瑄對唐山寄籍者的寬大，甚至鼓勵的態度，間接造成兩岸人才、文化的交流與相互影響。而陳夢林可以說是有系統闡述開發臺灣中北部的第一人，其提出積極增加北部行政規劃的必要性與可行性，甚具啟發性。迨藍鼎元進一步呼籲，雍正元年（1723年），清廷遂將虎尾溪以北地域另設彰化縣及淡水廳。
從康熙年間的消極治臺轉而積極經營臺灣的重要關鍵，藍鼎元的歷史地位不可忽略。藍鼎元懇切勸止臺鎮移澎政策之不可行，康熙年間廷臣疆吏對臺灣猶未能認識其地位之重要，故有消極棄臺之議，但賴施琅與藍鼎元等先後力爭陳請，方始挽回。藍鼎元的治臺政策，其基本想法頗承自之前來臺的陳夢林，但藍鼎元治臺規劃的層面則較陳夢林更加具備全面性的設計。其更針對臺灣的軍事、吏治、文教、理番與土地開發等各方面闡述他的治臺理念。藍鼎元的積極治臺主張，不僅在於防備日本、荷蘭等外患，其認為積極治臺還可解決內賊之憂與野番之害，可謂治臺規劃兼顧內外需要，頗具「全面性」。朱一貴事件的發生與臺灣吏治腐敗有關。藍鼎元認為要改變這種吏治腐敗的局面，最重要的是整頓臺灣吏治恢復官莊。此外，藍鼎元積極主張改變臺灣的人口結構，並且移風易俗，推行教化，並推廣義學以普及教化。雍正以後，臺灣各地書院、義學之創設，如雨後春筍，藍鼎元之倡導文教治臺的建議，產生相當程度的影響，對於促進臺灣走向「文治」社會的具體措施，有很大的影響力。
最後，結論部分提出對康熙年間治臺策論分析，有三項看法。其一，清廷治臺態度與制度之顧忌，致臺灣難治。蓋猜疑的政治態度延伸不信任的政策與制度。尤其是迴避制度及人事制度不良之影響。再者，臺灣海峽風暴不定，橫渡不易。此一險惡的自然環境對來臺官員心理產生莫大的壓力，遂有因人而治的治臺成效。其二，文教治臺卻是治臺人物的共同主張。臺灣文教工作的貢獻，在臺灣開發史上扮演了重要的催化作用。其三，在治臺人物的角色功能與作用方面。反映臺灣民情風俗，作為唐山與臺灣溝通的橋樑以及官治形象的奠立有效緩和臺灣社會的壓力。證明正面的吏治形象奠立無疑對治臺產生重要的延續效應。滿清治臺二百多年，雖說吏治不良、民變、械鬥事件不斷，但是在此紛亂的格局下，竟也能治臺二百多年，雖治臺期間發生如康熙年間的朱一貴事件、乾隆年間的林爽文事件以及同治年間的戴潮春事件等較大民變，但是終能順利平定。此與康熙治臺期間，治臺人物的策論及施政作為不無關係。
從本研究得知，滿清治臺二百多年來，臺灣也不乏少數值得一提的治臺人物，他們實心治臺所留下的治臺策論與施政措施，在滿清治臺政策層面上有些正面的影響與貢獻，透過治臺人物的治臺策論研究，對清代臺灣政治人物的瞭解與研究，向來強調較高階者，如福建巡撫、臺灣巡撫等，本文以中、低層治臺人物為主要探討對象，希望具有補充的意義與作用。

This study focuses on representative political figures governing Taiwan during the Kangxi era in Qing Dynasty, as well as their strategies of governance. In the chronological order of their respective governance in Taiwan, observations are made in terms of the impact of the thinking, content and implemented policies of these officials and aristocrats, in order to further analyze the essence of strategies governing Taiwan.
This study is divided into five chapters. Chapter one is the introduction, outlining research motives, a review of the fruit, as well as research methodologies and overall structure of the chapters. Chapters two to four focus on the political figures that greatly influenced the thinking and policy changes of governing Taiwan both before and after Kangxi took over Taiwan. Chapter two is dedicated to the discussion on the historical development of the proposals to remain in or give up Taiwan, with special attention to the strategy proposals to remain in or give up Taiwan made by Yao Qisheng, Shi Lang and Li Quangdi. Chapter three focuses on the former period of 1685 – 1704 (from the 23rd to 42nd year of Kangxi era), exploring various figures such as Ji Qiguang, Gao Gongqian, et al, their thinking and the impact of their policies governing Taiwan. Chapter four focuses on the latter period of 1705 – 1723 (from the 43rd to 61st year of Kangxi era), exploring figures such as Chen Bin, Zhou Zhongxuan, Chen Monglin and Lan Dingyuan, et al, their thinking and the impact of their policies governing Taiwan. Chapter five is the conclusion which is an inductive analysis of the policies and strategies governing Taiwan during the Kangxi era, as well as a presentation of their historical significance and views policy analysis.
This research thinks that regarding whether to remain in or give up Taiwan, the earlier proposal to keep Taiwan was made by the governor of Fujian Province, Yao Qisheng. However, this proposal was not accepted by Emperor Kangxi at the time. The more influential opinion was made by Shi Lang, whose theories and perspectives urged Emperor Kangxi to seriously consider whether to remain in or give up Taiwan. Yet the political considerations of Qing Dynasty were not resolved. Most of the times, Emperor Kangxi would consult Li Quangdi regarding the issue of remaining or giving up, or the policies govern Taiwan. Based on a superficial review of Li Guangdi's statements made on this issue, it seems that Li advocated the idea of giving up Taiwan. However, judging from the dialogue between Li and Emperor Kangxi, the internal motive apparently leaned towards remaining in Taiwan and governing the island.
The greatest impact that Li Guangdi had on Qing Dynasty regarding the governing strategies in Taiwan is the "rotating military service" system. Comparing with the opinions governing Taiwan of Shi Lang and Li Guangdi, Shi Lang advocated a three-year rotation for “garrisoning officials”, yet Li Guangdi further suggested such rotation be extended to “localized soldiers” Li’s main thinking of governing Taiwan is “not sparing the labor and expenditures” which was reflected in the rotation of “localized soldiers” to counter Shi’s suggestion of having “thousands of localized soldiers” garrisoning Taiwan with the purpose of avoiding Taiwan from becoming a threat to Qing Dynasty once again. Granted that the design of the “rotating military service” system could solve the presupposition that the soldiers might take over Taiwan and stage a rebellion, but because of their utterly low quality and the flawed system, the public safety was deteriorating and continued rebellions from the civilians were taking place in Taiwan that was primarily immigrant-based. Taiwan thus became a difficult island to rule.
During the years while Kangxi ruled over Taiwan, the first Zhuluo (i.e., Jiyai) County magistrate, Ji Qiguang proposed strategies governing Taiwan following Shi Lang and Li Guangdi. Ji, who was the first governing official in Taiwan well learnt in Taipei Geography, proposed the establishment of military garrisons in Taipei region. In order to better local public safety, he further proposed that salaries should be prepared for the rotating soldiers, fortresses be built for defense purposes, and the actual implementation of “localized security” system. He also boldly reported the over-taxation and the exploitation over land and economy of Shi Lang in Taiwan, who was indeed a virtuous governing official in Taiwan.
Amongst the figures governing Taiwan before 1702 A.D. of Kangxi era, Gao Gongqian was another one who proposed strategies governing Taiwan, who was the official rectifying the armed force garrisoning Taiwan and Xiamen regions. He regarded highly of the civilian rule, needs of the people, as well as the building up of cultural education in Taiwan, and pointed out two things that needed attention, namely the policies governing the aborigines, i.e., reducing their burdens and prohibiting the merchants from exploiting them. Secondly, he responded to the need to construct cities in Taiwan to fend off threats from outside forces. It is obvious from Gao Gongqian’s strategies governing Taiwan that there was the urgent need to develop the land on the island in response to the production of food crops. He also decreed the ban on creditors charging high interest rates from the civilians, and strictly prohibited the crooked merchants from exploiting the manual labor from aborigines – these measures all received much favor from the civilians. Gao’s rule in Taiwan reflects the reality that the reactive and conservative policies governing Taiwan were under serious scrutiny in the 1700’s A.D. of Kangxi era, meaning that the one-city (府) three-county governing region no longer fit the actual needs – Taiwan needed governing policies with foresight.
In the history of governing Taiwan during Kangxi era, the rule of Chen Bin must be given a place in history. His special achievement was laying the foundation for Taipei region by implementing policies of development, who succeeded Zhuluo County Magistrate Ji Qiguang and the proposal of garrisoning Taipei through implementing the policy proposal. Chen’s tie with Taiwan was very close during his life as a public official. His major policies included: governing Taiwan with culture and education. Chen’s policies focused heavily on the function of culture and education, for example, the building of temples, establishment of local schools, rules regarding quarterly examinations. Thirdly, he abolished “officials’ villas” in order to stop corruption. Fourthly, Chen’s most-foresighted policy governing Taiwan was his attitude towards the administration of Taipei region. Lastly, he advocated the aborigine policy of education.
After Chen Bin’s rule, Zhuluo County Magistrate Zho Zhongxuan and Chen Monglin are worthy of being mentioned. Amongst the policies of Zho and Chen, first of all was water conservancy and promoting civil economy. The second was the governing based on the division of counties. The most important was enhancing the safety of the people and improving the society through education. To them, the promotion of education and changes in the customs were fundamental to governing Taiwan. Due to Zhou Zongxuan’s leniency on the resident aliens from Tangshan – he even encouraged them; exchanges between the two straights regarding people and culture were indirectly resulted. Chen Monglin was the first to systematically describe the development of northern and central Taiwan, who also proposed the feasibility and necessity of adding northern administrative regions in Taiwan.
Lan Dingyuan was a monumental figure in Taiwan politics during Kangxi era who changed the governing of Taiwan from being reactive to proactive. His governing policies inherited the basic thinking from Chen Monglin, yet his planning covered more facets and was more extensive in design than that of Chen. His ideas of governing Taiwan covered aspects such as the military, rule of the officials, culture and education, aboriginal policies and land development. Lan’s suggestions on promoting the governing through culture and education were greatly influential in the actual measures that brought Taiwan to a society ruled by culture and education.
Lastly, three points are raised in regards to the analysis of Taiwan governance during Kangxi era. Firstly, the attitude and hesitation in the system in governing Taiwan in Qing Dynasty leads to the difficulty of actual governance. Secondly, governance through culture and education was the common denominator amongst all the political figures aforementioned, figures that also have played important roles in the history of Taiwan development. Thirdly, the roles, functions and effects of these figures reflect the different context and customs of Taiwanese society; these figures were the bridges of communication between Tangshan and Taiwan, and they established the image of rule by officials, along with the smoothening the pressures within Taiwanese society. This all demonstrates that undoubtedly, the establishment, a positive image of official rule has sustained effects on the governance.
From the study, it is known that during the two centuries of rule on Taiwan by Qing Dynasty, there were indeed some political figures worthy of being mentioned. They had influenced on and contributed to, in a positive manner, the policies governing Taiwan in Qing Dynasty with the strategies and policies that they had left. Through the study on these figures of lower levels and their strategies governing Taiwan, it is the author’s hope to complement the conventional approach of studying officials of higher levels governing Taiwan, such as Fujian and Taiwan governors.