以路徑依賴理論探討臺灣社會住宅之用地供給機制

Abstract

2010年起，臺灣政府開始興辦社會住宅，以改善都市高房價所延伸的居住正義課題。然而，地方與中央政府相繼高喊社會住宅政見，背後隱藏了興辦社會住宅的土地、經費與人力長期不足的問題，這導致十餘年後社會住宅存量並沒有大量增加。因此，本文關注於地方政府如何在資源不足的困境中開創土地供給模式，以及2016年中央政府提出「八年二十萬戶社會住宅」政見如何產生定錨（anchoring）作用，逐步影響法令、機構與不同部門合作模式的制度化過程。 本研究以路徑依賴理論（Path Dependence Theory）為分析框架，論述臺灣社會住宅用地供給機制的演進。其中，社會住宅政策改革的關鍵情勢（critical juncture）總是於相隔兩年一次的地方與中央選舉期間顯現，而執政者與在野者在此時的承諾與回應也牽動機制下一步的強化（reinforcement）、停滯或衰退。研究方法上，本文以檔案分析與深度訪談為主，先梳理政府報告書、會議紀錄與新聞媒體資料，在透過政府住宅部門人員、規劃顧問公司、倡議組織人員的訪談資料，強化本研究之論述。 為詮釋社會住宅用地供給機制特性，本文將臺灣用地供給機制演進過程分為摸索期（2010-2014年）、調適期（2014-2018年）與擴充期（2018-2024年）。藉由鑲嵌於各時期的法令修正、政策結合、經費籌措、建立機構與部門協商過程，解釋機制自我強化或停滯發展的取向。因此，本文除了聚焦地方政府決策過程的困難與創新，亦探討中央政府加入供給對機制的影響與衝擊。然而，研究發現社會住宅政策與都市規劃機制斷裂，促使供給機制缺乏長期且穩定的資源，進而受制於政治情勢、割據主義與財務自償等結構性框架中。

Since 2010, the Taiwanese government has embarked on the development of social housing to address the issue of housing justice arising from high urban housing prices. However, both local and central governments' proclamations regarding social housing policies mask the persistent challenges of land, funding, and manpower shortages. Consequently, there has been no substantial increase in social housing stock over the past decade. This paper, therefore, focuses on how local governments have innovated land supply mechanism amidst resource constraints. It also examines how the central government's 2016 policy of "200,000 units of social housing in eight years" has produced an anchoring effect, progressively influencing the institutionalization process of laws, organizational structures, and inter-departmental collaboration. This study employs Path Dependence Theory as an analytical framework to discuss the evolution of Taiwan's social housing land supply mechanisms. Critical junctures in social housing policy reforms consistently occur during the biennial local and central elections. The commitments and responses of both incumbents and opposition parties amid political dynamics influence the subsequent reinforcement, stagnation, or decline of these mechanisms. Methodologically, this paper primarily utilizes archival analysis and in-depth interviews. By examining government reports, meeting records, and media sources, as well as drawing on the experiences and perspectives of government housing officials, planning consultants, and advocacy organization personnel, this study aims to substantiate its discourse. To interpret the characteristics of the social housing land supply mechanism, this paper divides the evolution process in Taiwan into three phases: the Exploration Period (2010-2014), the Adaptation Period (2014-2018), and the Expansion Period (2018-2024). By examining the legal amendments, policy integrations, funding strategies, institutional establishments, and inter-departmental negotiations embedded within each period, the paper elucidates the tendencies toward self-reinforcement or stagnation of the mechanism. This analysis not only focuses on the challenges and innovations in local government decision-making processes but also explores the impact of central government involvement in land supply. However, the study reveals a disconnection between social housing policy and urban planning mechanisms, resulting in a lack of long-term and stable resources for the supply mechanism. As a result, the mechanism is constrained by the structural framework of political dynamics, sectionalism, and financial self-sufficiency.