社區發展的政策架構與議題：5個選樣國家的分析及對我國的啟示

The Trends of Community Development Legislation in 5 Countries and the Enlightenment to Taiwan

在社區發展工作上，無論是實務或理論建構，人們關心其他國家的政策議題及新作法，期待可以從中獲得參考應用。我國的社區發展政策始於70年代的戰後重建需求，雖歷時修改，但總體的政策架構思維迄今沒有明顯變革。相對地，國際社區發展已有諸多的新發展，包括納入賦權機制、中介專業機構，以及視社區為國家幸福指標場域的思維。國內研究者對社區發展立法雖有關心，但對其他國家的社區發展立法內涵及規範架構的探討尚未多見。從社區發展法制切入，是理解一個國家對於社區發展工作架構與制度設計的最直接而明確的方法。

本文關注社區發展的政策架構與核心議題。政策架構主要呈顯於在國家立法中，本文探究不同國家的社區發展立法脈絡理解其社區發展的核心目標與課題。本研究檢閱近二十年以社區發展為宗旨而立法的國家及地方政府相關社區發展法為範圍；選擇以英國（蘇格蘭）、美國（聯邦及州立法）、加拿大（新斯科夏省）、南非及盧安達等國家之立法為對象，分析此5選樣國家的社區發展立法及社區發展政策架構設計之共同理念，進而歸納受到國際間重視的社區發展價值。

本研究先歸納社區發展法的分析元素，即：國家面臨或待處理的社會議題及社會問題（social issue /social problem）；社會服務（social services）設計；立法對象與相關責任揭示，包括社會群體（social groups）、權責部門分工等；參與治理（participation）的設計，包括資格／權利賦予（entitlement/ empowerment）及義務（obligation）；以及專業工作者的角色等四個向度，作為分析比較架構。進一步以此架構分析與比較五個選樣國家的社區發展立法，並與台灣的情況進行比較。

依據分析結果發展對台灣社區發展工作的啟示，包括：認同藉由社區組織作為國家公共政策服務輸送的單元；國家政策必有回應社會問題需求或實現理念的中心思想，而此正是台灣所欠缺、未清晰的；國際上對社區賦權、社區中介組織等理念已呈現實務上的成功經驗，以社區為國民幸福指標場域，此均值得我國進一步參考。

 

In community development work, whether it is practical or theoretical construction, both researchers and community workers are concerned about the policy issues and new practices, searching for the enlightenment to better application. Understanding the legal system of community work is a direct approach to understand the working structure and systematical design for the community development of different countries. In Taiwan, we are facing the challenge of community development legislation construction, yet the studies on other countries’ community development laws and the policy thinking within are still rare.

This paper focuses on the related laws of community development in different countries and tries to understand the core objectives and subjects of community development as national policies. The researcher summarized the core issues of community development policies in selected countries, and then examined the value of community development that has been perceived in national legislation process. Reviewing the nearly two decades of related community development legislations in different nations, this research selected and focused in 5 countries： United Kingdom (Scotland), the United States (federal and state legislation), Canada (national/ Nova Scotia), Rwanda and South Africa, exploring the five selected countries’ legal framework and policy trends.

The analytical elements of community development law are considered in four aspects：1.The analysis structure of social issues and social problems facing or to be addressed. 2.The design of social services. 3.Participation in governance, empowerment, entitlement. 4.The obligation the disclosure of related responsibilities (including social groups, authorities, professional roles). Analysis and comparison of these five countries will contribute to the discuss and enlightenment to Taiwan’s community development work and legislation.

According to the analysis results, what Taiwan policy makers need to deliberate on are mainly the legal design of community organizations as a unit of national public policy service delivery, what and how national policies are responding to social problems and issues, the legal construction of professional community development or empowerment organizations and the role of professional workers.