One of the least urbanized of Taiwan's 25 administrative districts (which includes counties and municipalities), however, Kaohsiung County watched as manufacturers left and its agricultural sector ran into challenges posed by Taiwan's entrance into the WTO. These factors caused the unemployment rate to linger above the national average for several years in a row. Yang's goal of happiness through new job opportunities seemed all the more pie in the sky.
然而，25 縣市當中，都市化程度偏低的高雄縣，長期面臨製造業流失、農業也面臨後世貿時代的轉型挑戰，這些因素讓高雄縣的失業率連續幾年高於全國平均水準，楊秋興以創造就業為起點的幸福工程，也就顯得特別艱鉅。