陽光下之非正式性：綠能導向違建治理之發展願景與城市管理意義
Other Title
Informality brought to Light the Development Vision and Urban Management Significance of Green-energy Oriented Governance of Extralegal Built Forms
Journal
地理學報
Journal Issue
90
Start Page
27
End Page
54
Date Issued
2018
Author(s)
Abstract
國際非正式都市論指出全球南方之違建現象對理性規劃與都市發展之反思意義，也揭示諸多當代彈性與調適性違建治理之實踐；然而學理上對如何具體改善違建之環境與經濟外部性，使違建之包容性治理能接軌後進國家晉升與改變之意志，探究仍顯不足。本文針對國內最普遍之住宅違章增建，透過都市政治生態學架構，分析高雄市以太陽光電系統正式化屋頂增建與空地增建之治理過程，及國內如何從對這類違建之消極性管理，轉向建進式綠能導向治理，形塑矯正型之光電屋頂政策及防制型之高雄厝計畫，治理新舊違建。經由半結構訪談、檔案分析與田野調查發現，僅管實質環境、經濟考量與社會脈絡之複雜性使違建光電化轉型遲緩，但相關政策持續且擴散至其他城市，原因在於政府藉由綠能產生之環境補償效益，與違建不對等相對利益之抑制性，建構出治理轉型之正當性，透過政府與企業基於各自與共同需求之社會自然建構，在國家與都市尺度上分別形塑｢綠色成長」與｢綠色管理」價值以建構彈性治理正當性：一方面使都市非正式性得以接軌地方及全國性產業轉型進程，亦有利屋主資本積累，另一方面透過公私合作形塑具自償性、分散化原則之新違建管理機制，藉此兩大理由延續政府對違建之歷史性包容，並緩解治理焦慮；結論探討高雄市違建治理轉型之創新包容意義，亦進一步揭示以永續技術與論述作為正式化違建之政策工具，產生之社會排除效應，與政府在政策調適與資源分配上可改進之處。
Governments in the Global South are increasingly adopting adaptive and flexible policies on urban squatting. These practices inform, and are informed by, informal urbanism as an alternative to rational urban planning epistemology. However, how to decrease the economic and environmental exteriority caused by squatting remains unclear, leading to a gap between inclusive governance and the will of aspiring states to develop. Drawing upon urban political ecology, this study investigates Kaohsiung City's initiatives of incorporating the solar photovoltaic system and Kaohsiung House Program into the regulatory regimes of illegal residential built forms, such as rooftop and ground-level squatting. Research methods include semi-structured interviews, policy discourse analysis and census data analysis. As these forms of squatting are difficult to eliminate, Kaohsiung benefits from the environmental and economic interest generated by such initiatives, thus explaining the city's persistence in enacting policies to promote green energy. Researchers have identified ＂national green growth＂ and ＂urban green management＂ as the two primary rationales supporting this political shift, which enables the local state to continue its policy of tolerating extralegal built forms, while bridging the gap between urban aspiration and social reality. While these new policy initiatives appear to be innovative, they would benefit from further policy intervention to avoid the consequences of social exclusion in existing society. The conclusion discusses how this Kaohsiung experience may inform broader development studies, while proposing a set of approaches to form a more socially inclusive managerial environment.
Subjects
違建治理
都市非正式性
都市政治生態學
屋頂太陽光電系統
Extralegal building governance
urban informality
urban political ecology
rooftop solar photovoltaic (PV) system
Type
journal article