焦點事件與議程設定－文林苑案的個案分析

Focusing Event and Agenda Setting: A Case Study of the Wenlin-Yuan Project

邱靖鈜(Jing-Hung Chiu)

《政策與人力管理》 7卷1期 (2016/06) Pp. 55-85

https://doi.org/10.29944/PPM.201606_7(1).0003

摘要

近年來都市更新的政策議題逐漸為人所注意，特別在發生數起重大都更案的爭議之後，更讓各行動者開始聚焦與檢視現行都市更新條例的正當性。尤有甚者，士林文林苑都更案及與大法官釋字第709號，更促成主事者及各利害關係人對於都市更新政策採取積極地反省與修正的行動，進而提出不少的修法版本，類皆顯示由於文林苑案焦點事件的發生，的確對於都更政策的本質與面貌影響甚鉅。因之，焦點事件原本是議程設定更調的動力，不論是新議題的發掘，抑或已有議題優先序位的調整，本是政策變遷的觸媒劑。國外在焦點事件模型所牽引的政策演化，從人為抑或天然（核災、颶風、石油污染案）災害均有實際的案例，也針對焦點事件背後所支撐的假定，進行理論與實務的對話，俾使主事者在面對焦點事件可以進行積極、有效因應及後續管理。因此，本文試圖以焦點事件的視框，藉由文林苑的個案進行觀察與解析，知悉都市更新相關議題在此事件的議程設定情形，及各團體的動員及政策理念論述上如何地相互連動，引發那些的後續學習效應。進一步而言，探究文林苑案對於都市更新條例新世代形成的關連及後果，及政經社文層面的衝擊，進行理論及個案的思索對話，殊值未來主事者在推動政策過程的重要參據，冀以提升政策的正當性，型塑更為優質的都市治理。

關鍵字

焦點事件 ； 議程設定 ； 文林苑案 ； 都市更新條例 ； 視框反省 ； 都市治理

並列摘要

In recent years, issues related to urban renewal policies have received growing attention in Taiwan. Following controversies surrounding a number of major urban renewal projects, the legitimacy of the Urban Renewal Act has come under close scrutiny and review. The Shlin Wenlin-Yuan Project and its related Constitutional Interpretation No. 709 have resulted in the active review of urban renewal policies by the principal party and other stakeholders, and subsequently led to proposal of a number of amendments to be made to the law. It is evident that a focusing event, such as the Wenlin- Yuan project, has had a huge impact on the urban renewal policies. Hence, if an urban renewal project causes concern for various stakeholders involved, it is bound to attract media and public attention. Casting spotlight on a project sparks the need for major agenda setting, which can initiate important discussions on key policies. Therefore, the occurrence of any focusing event is significant as it forces the government to prioritize a number of key issues to be dealt with. Using the frame of a major focusing event and tracing important issues and key elements of this event, this paper aims to understand, through narrative and deconstruction of the Wenlin-Yuan Project, how the urban renewal related issues connect each other in terms of the event agenda setting, mobilization of various organizations, and policy discourse, and what learning effects are consequently triggered. In addition, by examining the connections and consequences of the Wenlin-Yuan Project on the formation of the current Urban Renewal Act, and its impact on political, economic, social, and cultural levels, a conceptual dialogue is created between the theoretical framework and a singular event, which can be used as an important reference in the future process of implementing new policies, and through which the legitimacy of urban renewal policies would be strengthened, and a comprehensive, supreme level of urban governance is ensured.

並列關鍵字

Focusing Event ； Agenda Setting ； Wenlin-Yuan Project ； Urban Renewal Act ； Frame Reflection ； Urban Governance