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標題: | 國家法規制度與夜市文化存續之互動關係 The Interaction of National Regulations and Legal Systems with the Persistence of Night Market Culture |
作者: | Lang-Fang Wang 王俍方 |
指導教授: | 王泰升(Tay-Sheng Wang) |
關鍵字: | 夜市文化,攤販法規,自主繼受,土地使用分區管制制度,住商混合,社區參與,在地經驗法學,結合台灣法律社會史與法律論證之法學, Night Market Culture,Streets Vendors Regulations,Independent Reception,Zoning System,Residential and Commercial Mixed-Use,Community Participation,Local Experience Jurisprudence,Jurisprudence combining Taiwanese social history of law and legal reasoning, |
出版年 : | 2019 |
學位: | 碩士 |
摘要: | 夜市是自清治台灣以降,由攤販群聚逐漸發展而成的街道生活飲食文化,其存續於現代社會中,不但是都市中最為醒目的傳統文化地景之一,更是吸引外國觀光客來台觀光的最大文化動機。可正因夜市攤販營業的負面外部性,自台灣社會於日治時期首次接觸現代國家法規範以來,夜市便被國家法規視為是交通秩序、衛生環境的破壞者,甚至是侵害正規商業利益的地下經濟場域而不容於現代法律社會。隨著師大夜市住商衝突的爆發,巷弄夜市或商圈存續於都市中與土地使用分區制度的衝突關係又使夜市的合法性再度降低。若台灣社會深以夜市文化為認同來源,要如何替都市中的夜市找到能合法存續的出口,便是本文最終的核心關懷。
對此,本文採取「結合台灣法律社會史與法律論證之法學」的研究途徑,在法學研究中納入歷史思維,找出所有可能與夜市相涉的國家法規,縱觀國家法規長久以來對夜市活動的管制範疇、側重面向以及相關法規於社會中的實踐情狀,企圖將實際的法經驗事實整合納入未來的修法建議中。而「自主繼受」的研究觀點則是以台灣社會為主體,試圖呈現出台灣從因殖民之故只能被動地繼受來自近代西方的法律體系,到開始因應在地社會的實際需求自主學習外國知識價值的動態歷程。而經由前述兩種研究方法的所得所知,最後再本於「在地社會經驗」的觀點, 發展「在地經驗法學」,為我國相關法制未來的應然圖像提出建言。 為證立擁有正/負兩面評價之夜市文化之於我國的價值,以及了解夜市的構成態樣事實,本文在第二章先行爬梳了夜市文化於台灣社會的歷史空間演進歷程並試圖根據現況重行定義。接著依據本文對夜市的定義,於第三章開始探討自台灣社會於日治時期首度接觸現代國家法規範以來,國家法規制度對夜市活動的管制歷程與各時期隨政經環境變動的側重面向,因而發現國家政權長期僅以攤販為管控對象,卻重未試圖對夜市文化整體進行規範,導致夜市如今的法制地位、主管機關不明,相涉規範四散、未與時俱進的攤販法規無法適當規範構成型態逐漸多元的夜市活動所產生的各式衍生問題等法律困境,師大夜市住商衝突事件所牽引出之巷弄夜市、商圈飲食文化與台北市土地使用分區法制間的衝突關係即是最佳的例證。 師大夜市所遭遇的法律困境實是台北市其他巷弄夜市、商圈的共同縮影,為了解土地使用分區管制制度的內涵以及其與巷弄夜市文化的衝突關係是如何產生的,本文在第四章將爬梳台灣社會對土地使用分區管制制度的繼受歷程。從日治時期因殖民之故被動地首次接觸,到1980年代台北市政府為改善國內尚嫌不足的分區法制條件和惡化的都市住居環境,主動學習美國紐約市分區管制規則正面表列的管制技術,從此奠定了台北市土地使用分區的管制法源基礎。起初,台北市僅選擇性地繼受部分的知識內容以維持我國住商混合的生活傳統,可隨著住商的過度混合、國內要求提升住居品質的聲浪,90年代相關法令透過「附條件允許使用」的管制技術漸往住商適度分離的光譜方向修正,頓時導致巷弄夜市、飲食商圈成為違法國家法規制度的存在。 有鑑於土地使用分區管制制度是發展自歐美社會的外來法律制度,未來該如何修法調整才能使外來的法律制度服膺於台灣的社會脈絡和在地生活經驗是本文的關注重點。對此本文試圖以台灣各界對住商混合/住商分離的價值選擇、師大夜市住商衝突事件爆發以來的相關論證著手,以在地社會的實踐情狀與意見給予國家法規未來應然面向的調整建議。是以,本文在第五章認為與其透過參考外國立法例的方式來解決我國夜市所遭遇的法律困境,我國應以長年的在地社會經驗自行發展支持夜市文化永續發展的「在地經驗法學」。 此一在地經驗法學的發展方向可以有二,(一)透過修法調整或直接運用既有的法規制度內容,讓其可配合夜市活動的營業特性,例如將住三分區內附條件允許使用的道路寬度條件下修為5公尺、運用《都市計畫法》第32條「特定專用區」的特殊分區給予攤販、商家大量聚集的夜市明確的分區法制地位、加強社區參與機制等。或是更為積極地(二)直接針對我國特有的夜市文化專門立法,訂立一部符合我國社會脈絡與價值選擇的夜市專門法律。 而本文基於整篇論文的問題發現與所知所得,對未來的夜市專法應涵括怎樣的架構內容提出下述些許意見,期望能為台灣的夜市文化找到合法存續的出口: (1) 必須涵括屬於夜市正式且符合發展現況的法律定義。 (2) 與攤販/商家經濟活動相關的行政登記事項(含攤販證照核發、稅籍登記與商業登記)之管理條文。 (3) 因夜市設置地點是位於戶外的道路上,會涉及都市內土地/道路/建築物之使用,整體規劃設計勢必得處理與《都市計畫法》以及土地使用分區法制間的衝突扞格問題。尤有甚者,未來此一專法與《都市計畫法》何者屬優先適用的特別法、夜市專法會否架空或凌駕《都市計畫法》的規範意旨都是必須加以留意的部分。 (4) 擴大社區參與機制中人民可參與的使用項目範疇(如使用組別第21組飲食業的附條件允許使用條件就應該包括社區參與的進行)。 (5) 針對無攤販營業許可證照而營業的攤販設下行政罰則,同時修改攤販證 照申請資格限制,落實憲法對人民工作選擇自由權的保障。 (6) 其他:中央/地方主管機關之決定與權限劃分、是否由中央統一框架式立法再由地方自治條例再行擴充、是否設置夜市專責的管理稽查單位、夜市內部自治組織的輔導成立、導入民間專家參與、獎勵市內攤販、商家群聚於夜市的特定專用區內等。 Taiwan’s night market culture was gradually developed by the clusters of street food vendors, which can trace back to the reign of Qing dynasty during the late 19th century. Such traditional culture continues to exist in modern society world, not only one of the most striking culture landscapes in Taipei, but also the typical tourism resources to foreign guests. However, due to vending’s great negative externalities, since the reign of the Japanese colonial period, modern jurisprudence and legal system have strongly condemned night markets and street vendors as the potential saboteurs undermining cities’ traffic order and sanitation. Even worse, night market activities are often relegated to an illegal underground economy, infringing the commercial interests upon legal capitalist commerce. As a result, the legitimacy of the night market culture has been gradually reducing. With the conflict breaking out between Shi-Da community’s local residents and store-owners in 2011, night market culture’s legitimacy has once again declined to an even more disadvantaged illegal status. Because merely the existing of a night marketplace in a modern city might just go against the city’s zoning rules. If we recognize the night market culture as Taiwan’s most typical folk symbolization, we probably should rethink and readjust our national regulations and legal systems to advocate the persistence of our very own culture. In this regard, this article adopts the approach of combining Taiwanese social history of law and legal reasoning to identify regulations that might be relevant to the restraint of the night market activities, observe the long-term interaction and practice of law with the vendors and vending economy. Furthermore, according to the research perception, the author will try to integrate the empirical fact of law into the future ought-to-be proposals. And from the viewpoint of independent reception, the author will depict Taiwan’s historical course of reception of modern zoning laws, and try to point out that as an independent country (rather than just a colony or province), Taiwan can finally receive foreign knowledges actively in response to the actual needs of the local community. From the perspective of local experience, the author suggest that development of our own local empirical jurisprudence is the only way and key to persist the night market culture. In order to recognize and identify the value and constitution of a night market, in Chapter 2 the author first explore the historical evolution course of the night market culture in Taipei, and try to give it a brand-new redefinition in accordance with the current circumstance. Then based on this definition, in Chapter 3 the author starts depicting the regulatory course and interaction of modern regulations and legal system with the night market activities since the Japanese colonial period. Both Japanese and KMT regime endeavored to legislate only for street-vendors control and other social issues that derived from vending. However, the notion of the night market culture isn’t their target, which leads night market culture to a very unclear and awkward legal status. That is, we don’t know who the competent authority is, what kinds of laws are relevant, and what’s worse, the conservative vendor regulations can’t cope with the legal dilemmas that deriving from the diverse night market constitution and activities. The conflict between alley-type night markets and the city’s zoning laws is the best demonstration of what current legal dilemma is. Shi-Da night market’s legal issue is actually a substantial epitome for all types of night markets in Taipei. In order to figure out the core connotation of the zoning system and how/why it conflicts with Taiwan’s night market culture, in Chapter 4, this article will first illustrate Taiwan’s reception process of the modern zoning system. To start with, Taiwan first encountered with the modern zoning system in the late Japanese colonial period, but the reception mode has changed from passive-reception to independent-reception in early 1980s, because the city government became aware that the domestic zoning rules are inadequate to cope with the rapidly deteriorating urban environment, therefore them had decided to take the initiative in receiving New York City’s newly zoning ordinance and administrative skills, but knowing that ‘residential and commercial mixed-use’ is our traditional way of living, which differs heavenly from New York City’s, so the city government chose to receive partially to maintain our traditional living customs. It was not until the early 1990s that the city government use the ‘condition use’-a zoning administrative skill and revise some zoning rules to modify the externalities derived from excessive mix of use. From that time on, most of the alley-type night markets nearing the residential districts had become illegal beings. Zoning is a foreign legal system derived from western social context, how to adjust the foreign context to local context of Taiwan is the aim of this paper. In this regard, the author collects some local empirical arguments for or against the ‘residential and commercial mixed-use’ living custom, in order to ultimately propose my ought-to-be suggestions for the future night market-related laws. Therefore, in Chapter 5 the author suggests that we should base on the long-term local regulatory experience, develop our own local empirical jurisprudence to advocate the sustainable persisting of our night market culture, instead of referring to foreign legislation directly. In respect of the local empirical jurisprudence, there are two directions for development, first, we can adjust or apply the existing legal system to match up with the characteristics of the night market activities, for example, revising the road width condition of R3 district downward to 5m or using the notion of Specific Purpose District from Article 32 of Urban Planning Act to construct a clear zoning status for night market culture, or strengthen community participation system and so on. On the other hand, we could act even more actively on legislating an exclusive law for our unique night market culture. Based on the perspectives and the perceptions gained from this study, the author’s opinions toward a refined night market law are depicted as below: 1. A qualified exclusive night market law must have a formal legit definition that is accordance with the contemporary night market composing circumstance. 2. Administrative provisions for registration matters related to the economic activities of vendors/merchants. (including vendor certification, tax registration and business registration). 3. Since night markets in contemporary cities are the combination of prepared-food vendors and established shops, the setting locations will definitely involve with the purpose of lands/roads/building uses, therefore the overall design must contain the perspective of zoning and urban planning system. 4. Strengthen the use and enlarge the scope of community participation system. 5. Legislate administrative sanctions on unlicensed street vendors, and regulate the negative externalities derived from night market’s activities, instead of resorting the sanctions from other relevant laws. 6. Others: decide the central/local competent authority, whether let the parliament does the legislating framework, then further supplement by local council or not, whether to establish an exclusive management unit only dedicated to night markets, counseling the establishment of autonomous organizations, adopt the concept of professional opinions, encourage the city's street vendors and established stores all gather together in night market’s specific purpose districts and so on. |
URI: | http://tdr.lib.ntu.edu.tw/jspui/handle/123456789/74855 |
DOI: | 10.6342/NTU201904238 |
全文授權: | 有償授權 |
顯示於系所單位: | 科際整合法律學研究所 |
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