都市更新的權力漂洗初探——〈都市更新條例〉§25-1增、修訂動機與過程的歷史檢視

A Preliminary Study of the Power Laundering in Urban Renewal－A Historical Review of the Motivation and Process of the Amendment of Urban Renewal Act, §25-1

〈都市更新條例〉公告實施（1998.11.11）以來至2010.04.20期間，歷經8次修法，台北市士林王家強拆事件（2012.03.28）引起社會重大關注後，內政部再度提出第9次修法，第9版於2019.01.31公告。期間，單§25-1一條即增、修訂達5次之多，為〈都市更新條例〉各條文中修改最多，也是最具爭議的條文之一。法律的修訂改變了民主法治國家本應維持的權力均衡，背後充滿了醜陋的權力掠奪。本研究的貢獻之一，在於運用Steven Lukes權力三面向（2005）的權力運作取徑解析§25-1增修訂過程，讓〈都市更新條例〉的修法是有權力者（the powerful）透過法律或決策機制的刻意設計可以被洞悉，呈顯「法律」不必然等於公平正義，都市更新等於公共利益的迷思只是有權力者為推銷一己價值觀或掩飾所欲維護利益，而透過立法過程漂洗出來的意識形態說詞。另一個貢獻是，長期受到有權力者透過法律或制度建立的意識形態綑綁的權力弱勢者，在掌握了「法外權力－決策機制－法定權力」或「法定義務－決策機制－法定無責」的三階段權力漂洗（power laundering）模式後，當足以辯析法治（rule of law）才是依法而治（rule by law）的唯一基石，對於被疊加的行政程序與提高的同意門檻掩飾下的實質正義侵蝕與憲法基本權侵害，將有信心與力量加以對抗甚至逆轉，最終得以關上政客、官僚與開發主義者聯手打開的潘朵拉盒子。 The forced demolitions of the Wang's home in Shilin on 2012.03.28 drew nationwide attention. Under huge pressure, the Ministry of Internal Affairs proposed the 9th time amendment of the Urban Renewal Act (URA), the new version just promulgated on 2019.01.31, which made §25-1 the most frequently revised (the 5th times) and the most controversial provisions of the URA. The amendment has changed the balance of power that the democratic rule-of-law country should have maintained. Behind the curtain, were scenes of ugly power plunder one after another. The contribution of this paper is to analyze the §25-1 amendment process through the “Three Faces of Power” theory by Steven Lukes (2005) , uncovered that those amendments were nothing but dedicated schemes plotted by the powerful to change the power-structure, revealed that the "law" doesn't definitely equal to fairness and justice. The myth that implementing the Act is accomplishing the public interest is only an ideology that the powerful want peoples to obey, so that they can promote what they believe or cover up what they intend to gain. Another contribution of this paper is that, those who have long been bound by the ideology setting by law and institution and became powerless, after recognizing the three-stage power-laundering model of " not-authorized-power－decision making mechanism－statutory-power " or " statutory-obligation－decision making mechanism－no obligation", they shall be able to discern that the “rule of law” is the very cornerstone of the “rule by law”. Therefore, while facing the multiplied administration procedures and increased consent threshold which violated constitutional rights and undermined substantive justice, those who forced-became-powerless will have faith and strength to confront or even reverse, and eventually closes the Pandora's box opened by the politicians, bureaucrats and developmentists.