以非正式公私協力網絡建構遊民取向之社會出租住宅：臺北市萬華地區的案例分析

Constructing Homeless-Oriented Social Rented Housing by Informal Public-Private Partnership Approach: Case Study of Wanhua area, Taipei

臺灣的遊民問題，特別是有關其居住權長期以來未受正視，相關政策亦缺乏合理的因應。遊民的基本特性在於，因經濟等因素而無法確保穩定的居住而露宿街頭，因此，遊民問題的根本性解套關鍵在於──如何提供其穩定的工作機會及妥適的居住環境。經文獻探討可發現，公營社會出租住宅為歐、美、日等國因應遊民等經濟弱勢族群居住需求的主要途徑。我國目前地方政府層級已有輔導遊民就業機會與提供收入的機制，然而卻缺乏公營社會出租住宅的供給與安置機制。本研究以臺北市遊民族群主要的群聚地點──萬華龍山寺周邊地區為對象，採取現地調查及針對第一線社工人員、社會出租住宅的房客及屋主之深度訪談進行研究。本研究嘗試還原、重現我國社會出租住宅在公部門有效供給不足下，民間部門如何透過間接引入公部門社福資源，建構出社會出租住宅的「非正式公私協力」供給網絡，解決市場失靈並供給遊民等弱勢族群居住需求的實際現況。本研究先就日本「正式公私協力」的案例分析後，提出社會出租住宅系統化的分類。本研究描繪出萬華地區社會出租住宅非正式公私協力網絡的全貌與運作機制，並認為我國目前非正式公私協力網絡乃是因應現有體制下的最適狀態，雖短期內仍恐困難，惟今後倘若達成諸如法制建構、部門整合、配合老舊地區更新等條件下仍有可能建構並取代現有非正式合作網絡機能的正式合作制度。本研究考量與實務操作的接軌與合理性，針對「住宅法」、「臺北市遊民安置輔導自治條例」等法令提出建言。

The welfare policy for homeless has been ignored in Taiwan so far. A homeless person can be defined as a person who could not secure their living space due to economical and other reasons. The critical solution for homeless issue is to provide them stable working opportunity and living environment. According to the literature, public social rented housing is becoming a common approach to providing living space for homeless and other minority. In Taiwan, occupational training program is provided in municipal level, despite the absence of a policy scheme like public social rental housing and long-term settlement. This study focuses on the case of Wanhua area, which is a well-known gathering spot for homeless people. The researchers performed in-depth interviews with formerly homeless people, social workers, and owners of private social rented housing in the local area. This study aims to clarify how the “informal public-private partnership network” is built up to supply the social rented housing for the demand of homeless and minority which could not be satisfied by public institution and market mechanism. After a brief review of the “formal public-private partnership” in Japan, this study proposes a systematic framework of social rented housing. Second, after illustrating the overall mechanism of informal public-private partnership network of private social rented housing in Wanhua, Taipei, we consider that this mechanism is an optimal solution under the present conditions of this institution. Without launching several strategies such as promoting legislation, cross-sectoral cooperation and proposing reasonable renewal project, etc., establishing a perfect formal system to substitute it within a short time is very difficult. To connect the academic theory with practical policy-making, the final part of this study proposes a “Housing Act” and “Homeless settlement and counseling regulation of Taipei City”.