邁向企業城市？ 台北市產業發展與都市再發展的政策與實質

Abstract

近十多年來，台北市數處興起都市再開發計畫，大多作為產業園區和公共設施為主要用途並與市政府有相當程度的關連。既有文獻多探討市政府在產業園區發展中扮演的角色，卻發現市政府不具關鍵主導能力，後續研究因而轉向市政府引導開發的動機與能力來源，提出振興房地產經濟是土地開發的啟動因素，而市政府的能力來自於在民選政治中取得的相對自主性，民選首長且利用都市計畫工具推動土地開發。本文在上述基礎之上，試圖更深入分析市政府如何運用都市計畫工具和地方自治法令來協助開發。另外，本文也以台北市自定的兩次產業發展條例為分析主軸，說明產業條例和土地開發的關聯，以及產業條例內涵與轉變。研究結果發現，第一次產業條例主要用於公有土地開發，輔以「委託條例」、「促參法」以及都市計畫工具，推動市內多起大型開發案。第二次的產業條例方向明顯轉向扶植中小企業，配合相關單位的政策規劃與執行，市政府較先前致力於產業發展，其條例卻依舊帶有園區用地規劃的意味。相較於歐美都市企業主義的治理轉型，台北市近年的產業發展與園區開發策略可視為民選市長尋求政績和都市房地產經濟下的政策運用。

In the recent decade, numerous planning and regeneration across Taipei city has been proposed. Most of the plans proposed the construction of industry zones and public facilities and displayed connection with city government. Current literature mainly focused on the function that the city government played during the development of industry zone. The results indicated that city government lacked leading competence in this issue, actually, the later studies shifted the research directions and suggested that boosting the real estate and property was the real reason underlying the initiation of land development. The capacity for the city government to promote the land development is derived from the political autonomy endowed by democratic election and enabled the elected governors to utilize the city plans as the means to promote land development. In this study, the deep analysis of how the city government utilizes city plan as well as acts of regional autonomy to assist land development was carried out. The main axis of analysis was based on the two industry development acts proposed by the Taipei city. The purpose of the analysis was to figure out the relationships among industry-related acts, land development and the content and evolution of industry acts. Our results suggested that the first industry act was mainly applied to land development, along with other associated acts and the means for city plans, this act promoted plenty of large-scale development cases in Taipei city. The direction of second industry act obviously shifted to the supportive assistance for the SMEs. Combined with the policy planning and execution of the associated units, the city government furthered the devotion to industry development, despite the act remained entangled with planning for establishment of industry zone. Compared to the transformation of management in contemporary western cities, which is often associated with entrepreneurism, directions of industry development and industry zone development strategies could be seen as the means for the elected mayors to compile governance credits as well as the products of real estate economics in Taipei cities in recent years.