我國高齡友善出租住宅法制度建構 —借鏡日本高齡者居住法「附服務型高齡者住宅」

Abstract

在即將邁入超高齡社會的人口壓力下，高齡者居住貧困的議題逐漸浮現。隨著獨居及老老相伴的居住型態增加，傳統家庭照顧功能開始動搖，老年居住不安定的現象早已不侷限於經濟困窮的高齡者，而普遍成為老人晚年可能面臨的困境。對此，各國紛紛開始發展介於「自宅」與「機構」之間的「高齡友善出租住宅」，以回應中收入且尚具自理能力高齡者的普遍需求，避免其因孤身無依而過早入住機構。惟我國目前專門針對高齡居住而設之法規範，似乎僅剩下行政規則位階之老人住宅綜合管理要點，現實上趨近於「立法真空」的處境。本文乃以日本高齡者居住法創設之附服務型高齡者住宅作為比較對象，觀察其如何透過專法縝密規範高齡者居住安定確保相關制度，進而促成「住宅」得以連結「服務」，期盼能借鏡日本法制經驗，為我國接下來高齡友善出租住宅法政策方向立下錨點。 本文首先回顧我國高齡友善出租住宅法政策發展歷程，約可依序劃分為「老人公寓」、「老人住宅」以及典範轉移後的「社會住宅」三個階段。由於高齡友善出租住宅涉及「住宅」與「服務」二大制度資源，因此將分別盤點住宅政策及福利政策在各階段曾做過的努力，並探討國家建立了哪些法律試圖發展此種新興服務模式。期望透過上述分析，能釐清我國法制面臨之困境，尤其過去「促進民間參與老人住宅建設推動方案」之失敗尚殷鑑不遠，接下來究應如何勾勒法制框架，方能避免重蹈負面政策經驗之覆徹，乃係未來高齡友善出租住宅法制建構的核心課題。 而就日本高齡者居住法所創設之「附服務型高齡者住宅」，本文將爬梳高齡者居住法之沿革，並聚焦在政府如何活用民間力量，制度性地促進及監管附服務型高齡者住宅市場之發展。另一方面，日本如何在住宅與福利部門合作的基礎上，設計法定最低限度服務以確保高齡者居住的安定性，並且在法制配套上如何使附服務型高齡者住宅與介護保險服務資源連結、乃至與「社區整體照顧」目標銜接，其相關法制經驗實足我國參考借鏡。 接著將比較分析台日高齡友善住宅法政策以下三個議題，包括：政策定位及國家立法介入之正當性、促進及監管手段、以及服務安排。本文認為國家為實現普及式高齡者居住權保障之任務，相較於利用公共住宅進行居住照顧，針對這群非經濟貧困之老人其實更適合仰賴市場力量來滿足其需求，並以「市場失靈」作為國家公共干預之論據，特別是服務提供而生之資訊不對稱。在此基礎上，國家立法促進及監管市場之法制設計，尤可參考日本「補助金模式」及「登錄制度」，惟在補助對象上，本文建議修正日本模式，宜補助「服務」而非「住宅」。末就服務安排，則可設定「法定最低限度服務」，強化高齡友善住宅穩定居住之核心功能，並以公共長照服務作為補充包，支持高齡者能在熟悉的社區繼續居住。在此脈絡下，高齡友善住宅可被期待為「社區整合體照顧」下重要的活動據點，以此實現高齡者居住權保障「獨立」、「繼續居住」及「融入社區」之核心關懷目標。

With the impending pressure of entering a super-aged society, the issue of housing poverty among the elderly has gradually emerged. As seniors choosing to live independently and childless elderly couples have become more common, the traditional family caregiving function is faltering, and the phenomenon of unstable housing in old age is no longer limited to economically disadvantaged seniors but has become a common challenge that older people from varying economic situations may face in their later years. In response, countries around the world have begun to develop "aging-friendly rental housing" models that bridge the gap between one’s home and an institutional care in order to meet the widespread needs of middle-income seniors who are still capable of taking care of themselves. Thanks to these models, premature institutionalization due to living alone can be avoided. In Taiwan, the legal framework for aging-friendly rental housing is limited to only one administrative regulation, leaving a legislative void in practice. This paper compares the legislation in the Japanese Act on Securement of Stable Supply of Elderly Persons' Housing, governing " residences for elderly people with services " to observe how it ensures stable living conditions for the elderly through comprehensive legal regulations and facilitates the integration of "housing" and "services." By drawing insights from Japan's legal experiences, this study aims to provide a reference point for the future direction of aging-friendly rental housing policies in Taiwan. The paper begins by reviewing the development of aging-friendly rental housing legislation and policies in Taiwan, which can be roughly divided into three stages: "elderly apartments," "elderly housing," and the paradigm shift towards "social housing." As aging-friendly rental housing involves both "housing" and "services" as essential resources, the paper will examine the efforts made in housing policies and welfare policies at each stage. It will also explore the laws that the government has enacted to develop this emerging service model. Through this analysis, the aim is to clarify the legal challenges faced in Taiwan, particularly considering the past failure of the "Act on Encouragement and Promote Nongovernmental Participation in Public Construction." To avoid repeating the negative policy experiences, the paper will discuss how to outline a legal framework, addressing the core issue of constructing aging-friendly rental housing legislation in the future. Regarding the " residences for elderly people with services " established by the Japanese Act on Securement of Stable Supply of Elderly Persons' Housing, this paper will examine the evolution of the legislation on elderly housing and focus on how the government utilizes private sector resources to systematically promote and regulate the development of the aging-friendly rental housing market for the elderly. On the other hand, it will explore how Japan, through collaboration between the housing and welfare sectors, designs minimal service requirements to ensure the stability of elderly residents. Additionally, the paper will investigate how the legal framework connects the residences for elderly people with services for the elderly with long-term care insurance services and aligns with the goal of a "caring community. " The relevant legal experiences in Japan provide valuable insights for Taiwan to reference and learn from. Next, the paper will conduct a comparative analysis of Taiwan and Japan's aging-friendly rental housing legislation on three key issues: policy positioning and the legitimacy of national legislation, promotion and regulatory measures, and service arrangements. The paper suggests that to achieve the mission of guaranteeing universal access to elderly housing rights, it is more suitable to rely on market forces for meeting the needs of non-economically disadvantaged elderly individuals, rather than using public housing for caregiving purposes, with "market failure" serving as the rationale for state intervention, especially concerning service provision due to information asymmetry. Based on this, the paper proposes the legislative design of promotion and regulation of the market, drawing insights from Japan's "subsidy model" and "registration system." However, the paper recommends modifying the Japanese model to subsidize "services" rather than "housing." Moreover, the paper proposes setting a "statutory minimum service requirement" to strengthen the core function of stable living in aging-friendly rental housing and supplementing it with public long-term care services to support the elderly continued living in familiar communities. In this context, aging-friendly rental housing can be seen as a critical hub for " community-based integrated care systems," thus achieving the core objectives of guaranteeing elderly housing rights related to "independence," "continuing to reside," and "community integration."