都會區捷運運作模式：以北高捷運為例

2017年政府提出前瞻基礎建設計畫，特別預算資源多投用於各縣市的軌道建設，其中都市捷運為推動主軸之一，社會各界亦關注於捷運能否永續經營。而我國捷運建設之投資規模早已逾兆元，公共政策的選擇需及早整合並建構產業發展路徑。本研究以臺北捷運及高雄捷運為例，自興建至營運階段，分別以組織結構、人事、預算財務三個面向，探討都會區捷運的整體運作模式，分析政策的互動關係及差異化程度，將論點延伸出規範性意涵，並供其他欲推動捷運建設之地方政府參考，提出對治理機制之建議。研究發現，政府推動捷運建設之方式有政府自辦、BOT及委託代辦，我國目前捷運有五種組織運作模式，且大都採建營分離模式。其次，北高捷運局在組織規程修訂後，人力之協力互通較有彈性，而人才培育應建立制度與重視經驗傳承。再者，為利捷運建設永續經營，落實最終財務責任應先預防潛在財務風險並降低交易成本、運用基金預算推動且設立系統設備重置之負擔機制，而捷運公司培養運量提升本業營收更要搭配業外開發效益，另外需釐清捷運應由中央蓋或是地方負責興建，政府也必須扶植捷運產業有效推展。臺灣目前已不可能再有像臺北捷運局一樣，有龐大人力自辦規劃、設計、施工及監造，其他縣市也大都仰賴專案工程顧問協助運作。而自從高雄捷運紅橘線BOT案修約後，除非政府會提供很強的經濟誘因，否則將很難有第二個捷運BOT案出現。本研究並提出政策建議，包括應以全生命週期角度評估捷運整體運作模式、捷運建設應儘早決定營運機構、檢討整體路網經濟規模並逐步整併組織、採北中南區域性合作管理並設計固定資產重置機制、宜檢視大眾捷運法第13條有無修改之必要，而未來臺南捷運務必審慎決定組織結構，中央政府亦應儘速周延訂定捷運技術規範以扶植輕軌系統之產業發展。

關鍵字

大眾捷運系統；臺北捷運；高雄捷運；系統重置機制；永續經營

並列摘要

In 2017, the government proposed the Forward-looking Infrastructure Development Program, and special budget were used for the railway projects in different counties and cities. Among them, the urban MRT was one of the main scheme, and the society was also concerning about whether MRT could be sustainably operated. The investment scale of Taiwan's MRT construction had been more than 1 trillion N.T dollars, and the choices of public policy needed to be integrated earlier and the industrial development path should be built. Taking the Taipei MRT and Kaohsiung MRT as examples, this study explored the overall operation of MRTs and analyzed the interaction and differentiation of policies from the construction to the operational phases, with aspects of organizational structure, personnel and finance. To extend the view to the normative meaning for other local governments which was willing to promote the construction of the MRT, and proposed suggestions for government governance. The study found that there were three methods for the governments to promote the construction of the MRT, including the government's self operation, BOT and commissioned agency. Now five organizational operation modes of MRTs were practiced in Taiwan and most of them were the separation mode. Secondly, after the revision of the organizational regularions by Taipei and Kaohsiung MRT Department, the cooperation of human resources became more flexible, and the cultivation of talents should establish systems and emphasize the inheritance of experience. In addition, for the sustainable operation of MRT Transportation, the implementation of the final financial responsibility could prevent potential financial risks and reduce transaction costs while the fund budget was utilized to promote and set up a system equipment replacement burden mechanism. To cultivate traffic volume to improve the corporation's revenue and tie in with the development benefits of the industry, it was also necessary to clarify that the MRTs should be built by the central government or the local governments. The government must also support the rapid development of the MRT industry. In Taiwan, there is no longer a model, like Taipei MRT Department, which consists large scale manpower to plan, design, construct and supervise the project. Most other counties and cities rely on project consultants to assist in the operation. Since the contraction of the Kaohsiung MRT Red Orange Line BOT case, unless the government will provide a strong economic incentive, it will be difficult to see the second MRT BOT case. This study also proposes policy recommendations, including the assessment of the overall operation mode of MRT from the perspective of the whole life cycle. The MRT construction should decide the operating organization as early as possible and review the overall route network economy scale to gradually integrate the organizations. Regional cooperation management and design of fixed assets resettlement mechanism in North and Central and South Region should be implemented while whether article 13 of The Mass Rapid Transit Act shoule be reviewed and revised. In the future, Tainan MRT must carefully determine the organizational structure and the central government should also set the MRT technical specifications as soon as possible to support the industrial development of Light Rail Transit system.