我國直轄市下「區」制之政經分析

Political economy analysis of districts system under Municipalities in Taiwan

曹凱玲(Kai-Ling Tsao)

指導教授 ： 蕭全政

國立臺灣大學/社會科學院/政治學研究所/碩士(2010年)

https://doi.org/10.6342/NTU.2010.10363

摘要

2009年立法院三讀通過增訂修正地方制度法，代表我國行政區域調整及地方制度改革重大工程啟動，也確立了臺灣將從2010年12月25日起增加為「臺北市」、「新北市」、「臺中市」、「臺南市」，及「高雄市」5個直轄市，形成地方五都並立的局面。原屬各縣（市）下的108個鄉（鎮、市）亦同步改制為「區」，而「區」為直轄市政府之派出機關，區長官派，影響廣泛。
現今北、高二市土地面積集中且都市化程度高，改制後的直轄市面積大且轄區內城鄉差距更大，在地理、人文、產業、交通、族群等方面具有相當的複雜程度。因改制而斷然取消鄉（鎮、市）自治地位，基層參政空間明顯縮小，直接影響當地居民的參政權與自治權，甚至激化市級選舉競爭，牽動政黨地方政治版圖的變動。
全球化下國際城市經驗的啟發，都朝向給予地方次級行政區更大的自治權限，因地制宜。中國上海市的地方制度採彈性化二級制設計，而英國倫敦大都會或日本東京都的地方次級行政體制，都曾經在過渡時期實施雙軌制，目前皆為二級制，另韓國首爾特別市近年來推動區長民選，區實施自治。未來直轄市的都會治理概念勢將有所轉變，一體適用的改制並沒有太大意義，採用多元治理模式，適時加入彈性化的調整，考慮「區自治」或「雙軌制」，並利用階段性的配套措施，將可減緩改革的阻力及避免負面的衝擊。
五都並立，直轄市的規模朝向「大型都會」擴大，對內要進行整合發展出屬於各自的特色，帶動區域性發展，對外則要面對不同屬性的國際競爭，為了在全球化年代強化草根性民主，呼應海陸爭霸格局中的民主同盟，直轄市之區更應該重新思考賦予自治權限。從國家競爭走向城市競爭，我們應該更積極汲取在地的智慧與資產，發展出真正屬於自己的城市魅力，帶領臺灣邁向全球化競爭的時代。

關鍵字

改制直轄市 ； 地方制度 ； 地方自治 ； 區長官派 ； 區自治 ； 雙軌制

並列摘要

Legislative passed the amendments to the Local Government Act in 2009, which switches on the reforms of allocation of administrative areas and regional systems. It also led to the situation that Taiwan is established into five municipalities: Taipei city, XinPei City, Taichung City, Tainan City, and Kaohsiung city in December 25, 2010. Former 108 townships (towns, cities) under counties (cities) are simultaneously transformed into "districts", and "districts" are positioned as agencies sent by the municipal government, and the head of the district are also designated by the municipality officers.
Today in Taipei and Kaohsiung city, the areas of lands and urbanization are both of high concentration, even more, the gap grows greater after the reform and becomes more complicated in geography, culture, industry, transpiration , and population. Furthermore, the local citizens’ participating in politics and autonomy are affected and reduced because of the cancel due to autonomy of township (town, city). The grassroots participation in politics has significantly narrowed directly, and even intensifies competition in municipal elections, which might change the allocation in the political map of the local political parties.
Inspired by the experience of international cities under globalization, there seems the trend toward local secondary administrative regions of greater authority. For example, Shanghai in China adopt flexible system where the secondary system are designed, while in London or Tokyo metropolitan areas, during the transition period two-track system has been implemented. Besides, it is also implemented in recent years in Seoul that Mayor being elected by citizens and autonomy is being practiced. There is not much significance to apply one system to all cities, instead, adopting multi-governance model, adding flexibility to adjust timely to consider "district of autonomy" or "dual system", and taking advantage of temporary measures will reduce resistance to reform and to avoid negative impacts.
Five municipalities are side by side, the size of municipalities towards "large metropolitan" expanded to integrate internally developed their respective characteristics to promote regional development, while facing international competition of different attributes, to strengthen the roots of democracy in the era of globalization, to echo with the allies in the pattern of democratic leagues, districts of municipalities should rethink the autonomous powers granted. From competition among nations to among cities, we should take more advantage of local wisdom and resources, to discover our own charm of cities, to lead Taiwan into the competitive era under globalization.

並列關鍵字

reform of municipalities ； local system ； local autonomy ； head of districts designated ； autonomy of districts ； dual track system

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