弱勢社區民眾參與都市更新的迷思： 台北市林口社區水源路一期整建住宅之個案研究

Abstract

由上而下的規劃是都市再發展早期慣用的手段，其隱含的是都市功能論述與追求美觀齊一，以「進步式」景觀為名的一種意識型態。在1990年代，面臨全球化過程中經濟再結構的壓力，促使各都市政府莫不以產業與土地利用轉型作為因應，許多窳陋不合土地使用效益的地區因此必須快速調整以臻合理化使用。此外，1980年代以來民主化的風潮所引動的「民眾參與」，亦成為都市更新所標榜的重要機制，其中「林口社區整建住宅」的都市更新過程更為都市政府標舉為其中的模範。本研究藉由此都市更新個案社區主體意識的發展過程進行深入探討，以期瞭解都市空間發展上國家與市場之作用，並進一步探索都市更新制度條件下「民眾參與」的可能性及其限制。 本研究發現林口社區雖被公部門以「弱勢社區民眾參與」作為都市更新的新議程與政策宣示模範。然其參與的實質內涵，卻存在許多的問題與困境，反應出都市更新制度面與結構性的限制。首先，都市更新制度面反應了保障財產權的思維，促這些區位良好的老舊社區，面臨更新時交換價值取向遠高於使用價值的保障，而民眾參與與自決的結果是私人利益凌越社區情誼；且公共利益更成為被操作的論述，社區的內部賦權呈現不均質分布的樣態；原先應給予照顧的弱勢住戶，在參與推動過程反而外絕於決策場域，甚或被迫離開。最後本研究建議都市更新若欲達到「參與式民主」民眾參與自主自決的預期，則在制度面上仍須增加公平分配機制與完善的安置方案，以增進社會面的關照。

Top-down (government-led) planning is a typical method widely used in solving urban renewal/redevelopment problems in Taiwan. It has long been criticized for paying little attention to the well-being of residents in vulnerable communities. The urban redevelopment policies, though has already been evolved with the confluence of globalization and local democratization process to include the participatory planning”, has still been strictly affected by the market value of land commodification. This research provides an alternative standpoint to examine the residents’ participation of community renewal for Lin-Kou resettlement community in Taipei. This case has been claimed by Taipei Municipal Government as a very successful showcase to help the renewal of resettlement communities, one type of the most difficult and challenging renewal projects to city government. The purpose of this research is to demonstrate how the urban redevelopment policy, quite contrarily, restrict the civil participation rather than encourage it. Participatory planning is, in fact, not a democratized game for vulnerable citizens in resettlement community as the community obtains an opportunity for renewal.