公私協力法制下民間參與高雄舊港區轉型： 以實務案例探討蓬萊商港區之公私協力模式

Abstract

台灣在本次COVID-19疫情中成為世界各國防疫的典範，成功關鍵除了來自記取SARS經驗，更是運用PPP（Public-private partnership）模式，由政府與民間建立公私協力關係，以穩定口罩價格與配給，全民才能團結對抗疫情。顯見良好的公私夥伴關係實為國家治理帶來不少好處。 高雄市為了促進舊港區的發展與轉型，過去長期「港」「市」分治執行的治理模式拖累了整體都市計畫發展，亦不符合民眾對公共服務強烈需求的期待。當代高雄地方治理不僅需積極整合中央港埠資源，更要建立一套融合公、私部門的新型態多元治理網絡，結合地方自然環境與產業文化特色，使公共服務的供給更為有效率地符合地方需求。 惟自2017年「港」「市」合一以來，僅見一宗「棧貳庫」公部門以自營模式轉型成功案例，面對急遽變遷的港埠機能與多元需求，財務窘迫的政府期盼引進民間資金加速推動公共建設，但在高雄舊港區閒置土地活化再利用效果似乎不彰。 本研究在探討公私協力法制下民間參與高雄舊港區之轉型，企圖從公部門內部制定之管理辦法角度開始探查，並以實際參與投資蓬萊商港區戶外閒置土地為例，期能透過經驗與資料之歸納與分析，累積第一手文獻。

In 2020, Taiwan has become a paradigm for COVID-19 pandemic control in the world. The key to success is not only to gain the experience from the previous SARS battle, but also to establish a Public-Private Partnership between the public and the private sectors to stabilize the price and supply of clinical masks. Accordingly, a good Public-Private Partnership indeed is obviously beneficial to the state governance. For the purpose of development and transformation of the Kaohsiung Old Port Area, the division governance model of 'Kaohsiung Port' and 'Kaohsiung City' in the past dragged the overall urban development, which does not meet the strong expectations from citizen’s demand on the public service. Currently, the most important thing for Kaohsiung City Government is to integrate the administrative resources of the central sectors and to combine the public/private sectors so as to set up a new multi-governance network to introduce the cultural characteristics from local and industrial. As such, the provision of public services can be more efficiently to meet the local demand. However, since the complete integration of “Kaohsiung Port” and “Kaohsiung City” in 2017, there has been only one successful case of the transformation of Kaohsiung Port Warehouse No. 2 that is under the self-operated model by the public sector. Under the circumstance of rapid change in the commercial port function, the financial distress government desperately eagers to introduce funds from private sectors to promote the development and public constructions, but the outcomes are not satisfied in view of the Kaohsiung Old Port Area. Under the Public-Private Partnership mode, the research attempts to start and discuss from the internal management measures formulated by the public sector, to approach the private sector participation in the transformation of Kaohsiung Old Port Area. The research also attempts to create a first-hand literature through a case study on the public-private partnership mode of Penglai Commercial Port based on the fieldwork experience and data analysis.