台北市艋舺城市博物館政策變遷之研究：協力治理的觀點

Abstract

過去西方國家城市在二次世界大戰後快速發展，然而自1960年代開始，面臨全球化的壓力，工作機會開始快速外移到第三世界國家，都市開始產生公共建設老舊、失業率上升等問題，政府從一開始採用著重硬體更新的都市更新（Urban Renewal）手段試圖解決都市問題，然而，自1990年代開始，逐漸被強調長期性、策略性多元手段的都市再生（Urban Regeneration）所取代。雖台灣都市並無如西方都市遭遇快速衰敗的問題，然自1990年代開始亦面臨產業外移、工作機會流失等問題，而台北市是一個發展已久的都市，各區存在發展不均的問題，其中發展較早的西區面臨發展停滯，台北市政府採取一系列政策，如2015年的西區門戶計畫、2017年中正萬華復興計畫等，期望解決區域發展停滯的問題。在上述背景之下推出台北城市博物館政策，其選定五個台北市發展已久區域，期望以城市博物館作為平台投入市政計畫，達到區域再生的目標。 本研究選取艋舺城市博物館作為研究對象，以協力治理的觀點去分析跨部門利害關係人之互動對都市再生的影響。經研究發現，首先，對萬華的利害關係人而言，對地方的認同感成為其參與並持續的決定性因素，期望藉由參與此政策實踐發展萬華之願景。其次，既存網絡關係在協力中扮演重要角色，利害關係人若存在網絡關係之連結，將易於培養信任關係，有助於協力之進行。第三點發現領導扮演關鍵角色，領導者不僅扮演培養利害關係人信任、引進資源的角色，且政治領導者更運用權威促使政府部門的利害關係人參與協力，並建立政府跨局處溝通會議。第四點則發現目前政策缺乏促使利害關係人有效參與之制度，不僅利害關係人之範圍難以擴大，非政府部門的利害關係人亦無法參與在問題形成的過程。第五點則發現艋舺城博缺乏上位戰略目標，目前政策內容幾乎皆是局處既有計畫，並無創新之計畫，筆者認為須藉由不同部門之利害關係人持續溝通以釐清萬華再生之具體內容，方可使政策永續發展。

Cities of Western Countries have developed rapidly after World War II, but since the 1960s their growth has been stifled by various problems such as the challenges of globalization, infrastructure decay, rise of unemployment rate, and so on. Governments have since adopted strategies which focusing on renewing old infrastructures of cities trying to tackle those problems in their cities. However, those attempts were met with limited success, and as such, government attempted a modified strategy, known as urban regeneration since the 1990s. Urban regeneration emphasized in taking long-term, strategic perspective to solve fundamental urban issues. Taiwanese cities were largely exempt from similar issues until the 1990s, where they started to face issues such as industries shifting and lose of job opportunities. Taipei, the highly developed capital of Taiwan is facing additional concerns such as uneven development. To bring Taipei out of its stagnant development, the Taipei city government embarked upon projects such as the Western Gate Plan in 2015 and the Zhongzheng Wan Hua Renaissance Plan in 2017 to boost development in the West part of the city, the development of which has become increasingly stagnant. In addition to the two redevelopment projects, Taipei city government selected five developed districts as the location to implement Taipei City Museum policy, which included various projects to aiming at urban regeneration. This study focuses on one of the projects contained within Taipei City Museum plans: Monga City Museum in Wanhua, which locate in the West part of Taipei. This study aims to analyze various interactions between cross-sector stakeholders and understanding the impact of such interactions on successful urban regeneration. This study presents five research findings: Firstly, the sense of identity is a decisive factor that is constantly being felt in the collaborative process among participants of the project. Secondly, existing network played a crucial role during the collaborative governance process, it is easier to foster trust if there are existing networks between stakeholders and will positively impact the quality of collaborative governance. Thirdly, the quality of leadership plays an important role throughout the collaborative governance process; successful leaders are expected foster trust between stakeholders, acquire resources, and induce cooperation and participation from government officials from various departments. Fourthly, Monga City Museum currently was unable to establish an effective system to incentivize stakeholders to participate. In other words, the scope of stakeholders cannot expand, and non-government stakeholders cannot truly participate in the process of problem formulation. Finally, there are no coherent strategic objectives in Monga City Museum policy. The contents are rehashed from existing projects and did not provide substantial innovation. Based on these findings, the study argues that for the regeneration projects in Wanhua district to be successful, the stakeholders must communicate effectively and continuously with one-another to concretize plans for Wanhua’s regeneration, to achieve sustained policy goals.