台灣地區公共設施提供長程策略探討

A Proposed Strategy for the Provision of Public Facilities in Taiwan

台灣地區公共設施保留地之取得，因受現行的規劃制度、財政制度、和都市計畫法之限制，使得公共設施建設問題拖延許多時日仍感棘手難治。本文提出一個基本的思考方向、盼能從根本解決公共設施提供的問題。政府提供公共設施的目標應在提高公共資源利用的效率性和公平性。現行的規劃、財政、和法律制度，倘有礙於達成公共資源使用的效率或公平，應逐漸加以修改。公共設施的提供方式應隨其基本特性而異，不宜採用統一方式。純公共財具備完金的「無敵對性」和「無排他性」。半公共財具備局部的「敵對性」和「排他性」。至於純私有財則具備完金的「敵對性」和「排他性」。依財貨所具備的敵對性和排他性之強弱，提供方式亦應有所不同。根據Samuelson的研究，純公共財之提供宜由政府完全負責。根據個體經濟學，純私有財宜透過自由市場的競爭力量來提供。又根據Tiebout的研究，半公共財宜經由社區間的競爭力量來提供。本文為了說明方便，將公共設施依服務範圍劃分為「區域性」、「全市性」、「社區性」、和「鄰里性」公共設施。根據分析，愈是服務範圍廣闊的公共設施，愈偏屬於純公共財，故其提供宜由政府負責。反之，服務範圍愈小的公共設施，愈屬於半公共財，其提供宜由「社區」或「鄰里」自行負責，以創造社區或鄰里間的競爭力量。最後本文提出台灣目前公共設施提供所遭遇的一些課題及其解決策略，盼從長期觀點解決公共設施提供之問題。

Due to the current institutional limits on planning process, financial administration, and legislation, the provision of public facilities in Taiwan seemingly could not be handled by the government. This paper provides a basic concept for the purpose of thoroughly solving the public facility problem in Taiwan. Efficiency and Equity are two objectives in dealing with the utilization of public resources. These two objectives can only be achieved under a healthy system of a government, related to the institution of provision public facilities. If there exists any deficiency, the institution should be changed, even the speed of change might be slow. Finding an adequate machanism for providing a commodity is not arbitrary, it depends on the property of the commodity. According to the proposition of Samuelson (1954), a pure public goods has the property of complete nonexclusiveness and non-rivalness such that it should be properly provided by the government. In microeconomics, it is known that a pure private goods could be efficiently supplied through the machanism of free market, since the pure private goods is both exclusive and rivalness. While a impure public goods, according to Tiebout's (1956) proposition, could be provided through the competition among communities. The intensity of exclusive and rivalness in an impure public goods is weaker than that in a pure private goods, but is stronger than that in a pure public goods. The public facility is classified into regional, urban, community and neighborhood levels, according to the service area. The intensity of exclusiveness and rivalness is different among each classification, so that the provision machanism should differ. This paper emphasizes that the larger the service area of a public facility is, the stronger the intervention force should the government have. Otherwise, the residents of neighborhook would arrange their environment by themselves. Finally, the paper also discusses some current issues on provision of public facilities in Taiwan, and proposes a few strategies from the long-range point of view.