居住正義－台灣社會住宅論述與政策之分析

Abstract

近年來，因房價急速攀升，居住困難的問題在台灣各都會區越形嚴重，為緩解此一現象，保護人民居住的權利，只租不賣的社會住宅成為政府住宅政策的焦點之一，且受到社會大眾的廣泛討論。本文使用文獻分析法爬梳台灣歷來的住宅政策，以及主導這些政策的意識型態，發掘形塑台灣社會住宅論述的主要成因。並對房地產業從業人員、民間從事土地與住宅之社會運動者及政府相關部門公職人員進行深度訪談，以不同角度交互印證前述文獻分析的結果，同時，以台北市和新北市為例，探討台灣實際執行社會住宅政策以來，其發展的現況、面臨的困境與批評，以及可能的解決之道。研究結果顯示，台灣社會住宅論述形成的原因，是由於台灣既有的住宅持有分配不均與住宅市場失靈，造成人民居住權受到壓迫，進而產生一種新型態的住宅提供之訴求，此訴求可視為對原有自由主義市場經濟主宰住宅分配的反動。台灣目前主要推行社會住宅政策的區域為居住困難情形最嚴重的台北市與新北市，其面臨的主要批評有數量少、租金高、租期短、承租對象年齡侷限等，而在政策實施上面臨的困境則有興建經費不足、政府資源分配不均、周邊社區鄰避效應處理與營運管理維護等問題。政府必須著眼於改善現行社會住宅政策的困境與批評，方能使社會住宅政策更臻完善，並能藉此達到落實居住正義之效。

In recent years, the dramatic increase in house price has led to difficulties for dwellings to serve their own housing needs in the metropolitan area in Taiwan. Social housing therefore becomes a vital policy, in hope of easing the stress on the difficulties of housing needs and moreover, reserving the civilian’s right of habitation.\nThis study is composed of two major parts: literature review and interview. The literature review provides the background and framework of housing policies in the past, identifies the ideologies that formulated the policies, and concludes the main factors that develop the discourse of social housing in Taiwan. The second part of the study reinforces the attributions of the literature review based on the statement and experience of the interviewees. The group of interviewees consists of chief executive form a construction company, real estate agent, social activists with awareness on land and housing issues, and civil servants involved in social housing affairs. The different perspectives presented by the interviewees explain the development of social housing, bring up the criticism and predicament on the topic, and contribute in discovering solutions for the difficulties of housing needs.\nThe findings of this study indicate that housing inequality and housing market failure has underlain the discourse of social housing. The exploitation on the right of habitation has raised the appeal for social housing, which can also be suggested as a counteraction to the housing distribution dominated by free market.\nIn Taiwan, social housing policy is mainly enacted in Taipei City and New Taipei City, which suffer most from the difficulties of housing needs. However, there are drawbacks that impede the promotion of this policy: lack of fund for construction, inequality on governmental resource, NIMBY in the community, and maintenance for sustaining operation. In addition, arguments about insufficient availability, unaffordable rent, short tenure and age restrict on tenants are also powerful against the policy. To conclude, the government should try to ensure that the system is designed in the way to minimize the disadvantages, which merits achieving social housing policy aim: reserving the civilian’s right to adequate housing.