以過渡性都市主義分析政府主導基隆市港都市再生實踐（2014-2026）

Abstract

「都市更新」並非城市發展的最終目標，而是回應城市多元課題的工具。自1960年代對推土機式更新的批判以來，歐美逐漸發展出「都市再生」概念，轉向綜合性、跨部門、長期策略的模式。其中，法國近期在政府主導、社會導向都市再生思維下，將暫時性使用制度化為「過渡性都市主義」（Urbanisme transitoire），以暫時性使用、多元協作與靈活介入方式回應城市挑戰，並將集體實踐成果回饋至長期規劃與開發方案，形塑兼具時間性、彈性與協作性的再生路徑。 相較之下，台灣《都市更新條例》以刺激房地產經濟為目標設計，更新制度高度依賴市場機制。因此在房市低迷與產業衰退的地區難以有效運作，亦無法處理中央—地方權責分散、港埠設施空間切割、非正式聚落等結構性問題。基隆市港地區即為典型案例：早期依附港口發展，但在部分貨運功能轉移台北港與市港分治之後，陷入社經衰退與更新失靈的雙重困境。 2014年政黨輪替後，基隆市政府在市港核心地區嘗試以暫時性使用、多元行動者協作展開政府主導都市再生實踐，包括市港再生標竿計畫、86設計公寓、設計與建築者之家。然而，這些實踐始終未被制度化，且在2022年政黨再次輪替後遭到不同程度的挪用或停滯。 本研究以同為政府主導、但將實踐經驗制度化的「過渡性都市主義」作為分析視角，依序從「政策演變→案例建構→理論分析→實踐脈絡與評估→制度啟示」的分析架構，系統性檢視基隆市港核心地區的再生實踐經驗，並進一步探討其對台灣都市再生制度建構的啟示。研究採用多重個案研究法，輔以次級資料與深度訪談進行資料蒐集與分析，並以研究者的內部參與者背景作為理解政策脈絡的輔助基礎。期望能豐富台灣都市再生制度建構之討論，並為老舊港市地區轉型與都市計畫體系的制度創新提供具體參考。

Urban renewal should not be understood as the ultimate goal of urban development, but rather as an instrument for responding to diverse urban problems. Since the critique of bulldozer-style redevelopment in 1960s, Europe and North America have gradually developed the concept of urban regeneration, shifting toward more comprehensive, cross-sectoral, and long-term strategic approaches. In France, under a government-led yet socially oriented approach to urban regeneration, temporary use has recently been institutionalized as Urbanisme transitoire. Through temporary use, multi-actor collaboration, and flexible spatial intervention, Urbanisme transitoire responds to urban challenges while feeding the outcomes of collective experimentation back into long-term planning and development projects. It therefore represents a regeneration pathway characterized by temporality, flexibility, and collaboration. By contrast, Taiwan’s Urban Renewal Act has been largely oriented toward stimulating the real estate economy, making the operation of urban renewal highly dependent on market mechanisms. As a result, the existing system often fails to function effectively in areas marked by sluggish property markets and industrial decline. It also has limited capacity to address structural problems such as fragmented authority between central and local governments, the spatial division of port facilities, and the persistence of informal settlements. The Keelung city-port area provides a representative case. Historically dependent on port-related development, Keelung has faced both socio-economic decline and the malfunctioning of urban renewal mechanisms following the transfer of certain cargo functions to Taipei Port and long-standing separation between city and port governance. After the political turnover in 2014, the Keelung City Government attempted to promote government-led urban regeneration in the city-port core area through temporary use and multi-actor collaboration. Key practices included the Keelung City-Harbour Regeneration Pilot Plan, 86 Design House, and the Keelung Designers’ and Architects’ House. However, these initiatives were never fully institutionalized. Following another political turnover in 2022, they have been selectively reinterpreted, repurposed, or suspended to varying degrees. Taking Urbanisme transitoire as an analytical perspective, this study examines Keelung’s regeneration practices through a framework of policy evolution, case construction, theoretical analysis, evaluation of practices, and institutional implications. Methodologically, the study adopts a multiple-case study approach, supported by secondary data analysis and in-depth interviews. The researcher’s positionality as an insider-participant is also used as a supplementary basis for interpreting the policy context. By systematically analyzing the regeneration practices of Keelung’s city-port core area, this study aims to enrich the discussion on the institutional construction of urban regeneration in Taiwan and provide concrete references for the transformation of aging port cities and the institutional innovation of the urban planning system.