都市計畫制度創新試驗之探討──以臺北市南港產業生活特定專用區推動都市更新為例

Urban Planning Institution Innovation Survey Based on Specific Purpose District of Industry and Living in Nangang District of Taipei

臺灣於工業化階段時，即出現「客廳即工廠」經濟政策，而形成工業區存在住宅聚落現況，衍生工業區之老舊住宅無法因應現行規範，面臨重建後不可繼續供住宅使用。而臺北市政府針對南港區進行第二次都市計畫通盤檢討中，透過劃定暫予保留區（產業生活特定專用區）範圍，以都市更新開發模式結合都市計畫使用分區變更，試圖解套老舊都市工業區無法再發展之問題。本研究聚焦於產業生活特定專用區透過制度創新試驗，試圖解決分區變更及土地使用管制僵化問題，以實地參與觀察其過程，是否產生老舊都市工業區再發展之契機，或有其他無法透過該制度創新解決之都市再發展困境因素。研究結果發現，以都市更新開發模式結合都市計畫使用分區變更，有促使都市老舊工業區民眾參與推動更新之誘因，但礙於在推動都市更新上，長久以來仰賴市場（民間機構）主導之模式推動而缺乏自主性與信任之意願整合，因此都市計畫之制度創新僅能解決地區特案性問題，尚無法推動都市更新普遍性所面臨之信任問題。

A feature of industrialization in Taiwan was the ''living room is factory'' economic policy of forming residential settlements in industrial areas that could not meet housing regulations and could not be used for housing after reconstruction. In the second overall review of Nangang District, the Taipei City Government tried to solve the problem of undevelopable old urban industrial areas by delineating the scope of a temporary reserved area (Specific Purpose District of Industry and Living) and formulating an urban renewal development model in combination with the urban plan to change the zoning. This research focuses on the Specific Purpose District of Industry and Living by conducting institution innovation experiments to try to solve the rigid problem of the changes to zoning and land use control by participating in the process on the ground. The effect of the Specific Purpose District of Industry and Living in creating an opportunity for the redevelopment of old urban industrial areas is considered, as well as other factors in urban redevelopment that cannot be solved by this system. Analytical results of this investigation indicate that the use of zoning changes in the urban renewal development model in conjunction with urban planning encourages people to participate in urban renewal in old industrial areas. However, the long-term reliance on the market-driven (private institution) model for the promotion of urban renewal leads to a lack of autonomy and trust in the willingness of integration. Therefore, this policy of institution innovation of urban planning can only solve regional special cases and cannot respond to the dearth of trust in promoting the universality of urban renewal.