第三部門的弔詭發展──以臺灣都市更新政策相關非營利組織的發展為例

The Third Sector’s Paradoxical Development: A Case Study on the Urban Renewal-Related NPOs in Taiwan

本研究呈現臺灣第三部門發展的弔詭現象。以高爭議多數決為核心機制的《都市更新條例》，藉疊加法定程序來淡化實質不正義，形成龐雜的法令。為緩解民眾恐慌，國家注入資源與誘因委託「非政府／營利性組織」來協助政策推動，吸引了相關業者競相成立社會團體。這類由第一部門誘促第二部門所組織的第三部門，可能受政府意志影響，或有利於政府在公民社群中進行偏差動員與意識操弄；雖然不是企業，具業者身分的成員卻可能藉由社會對第三部門的信賴來收割商業利益。原本應具有高度自治精神、公共性、不以營利為目的，以及扮演促進公共利益角色的第三部門，在都市更新領域中，顯然已淪為政府或企業的偽構組織，變相成為政府政策傳聲筒與企業獲利白手套，嚴重削弱公民社會力量。

This paper examines a paradoxical phenomenon in the development of the third-sector in Taiwan. The core operating mechanism of the Urban Renewal Act (URA) － majority rule － makes urban renewal policies highly controversial. To downplay the fundamental issues of the violation of constitutional rights and substantive injustice, authorities are continually adding “legal procedures” by issuing new norm rules, enforcement rules, directive rules, and canon rules. This has caused the emergence of a large, complex, and obscure body of law. To address public anxiety regarding the URA, authorities are funding nonprofit organizations (NPOs) or nongovernmental organizations (NGOs) to conduct propaganda in favor of urban renewal laws. Financial incentives have attracted numerous developers and practitioners to organize new NPOs to bid for contracts. General understanding, the third sector should be characterized by being nonprofit, highly autonomous, transparent, and in the public interest. However, in their advocacy work for public policies, these “second-sector-organized-NPOs” that are incentivized by the first-sector are deeply influenced by the interests of the government. Although they are not enterprises, they pursue business interests through the guise of NPO. Turns out, in the context of urban renewal policy, the third-sector is becoming a “marionette” manipulated by government and enterprise, playing a role as an instrument of political propaganda and an extended arm of profit-oriented enterprises, significantly weaken the strength of civil society.