從路徑依賴到路徑創造──論臺灣都市更新會實施都市更新之困局與突破

From Path Dependency to Path Creation: The Dilemmas and Breakthroughs of Urban Renewal Associations in Implementing Urban Renewal in Taiwan

臺灣都市更新政策經歷從政府完全主導到民間多元參與的演變，都市更新條例施行後引入民間都市更新事業機構及都市更新會等作為實施主體的新路徑。都市更新會路徑曾在九二一震災重建中成功，但此後未廣泛運用於一般社區更新，幾乎僅發生於災損重建類型的更新案件，顯示其在現行制度下陷入運用窄化的困局。
本研究旨在從「路徑依賴（Path Dependence）」與「路徑創造（Path Creation）」觀點剖析都市更新會實施都市更新的制度性困境及其關鍵影響因素，並探索可行的突破路徑。透過相關制度變遷的文獻回溯與實際推動成效的統計分析，發現以「路徑依賴」觀點確實可觀察到都市更新會運作有自我強化及鎖定現象，制度設計未注重擴及災損重建以外案件類型的情境。
然而，以「路徑創造」觀點亦可觀察到各制度行動者的「能動性（Agency）」仍不斷促使路徑「湧現（Emergence）」，實已解開【自主更新-都市更新會-災損重建】綑綁的概念，使都市更新會更有機會參與一般社區更新。政府應可投入更多行政與制度資源來厚實這些新興路徑，健全相關法規配套，促進自主更新能有更多元的推動路徑以突破現行困局。

Taiwan’s urban renewal policy has shifted from government dominance to greater private sector participation. The Urban Renewal Act introduced Urban Renewal Associations (URAs) as implementation bodies, a model that succeeded in post-921 earthquake reconstruction but remained largely confined to unsafe-buildings reconstruction cases, limiting its broader application.
This study analyzes the institutional challenges URAs face in urban renewal through path dependency and path creation perspectives. Institutional review and statistical analysis reveal that path dependency has reinforced a self-reinforcing lock-in effect, restricting URAs primarily to unsafe-buildings reconstruction projects.
However, path creation suggests that institutional actors continue to drive new pathways, gradually decoupling the Autonomous Urban Renewal–URA–Unsafe-buildings reconstruction nexus. This shift enhances URAs’potential for broader community renewal participation. To support this transition, the government should allocate more administrative and institutional resources, refine legal frameworks, and diversify mechanisms for Autonomous Urban Renewal, helping overcome existing constraints.