我國推動社區發展的主體:社區發展協會,一方面是按照「社區發展工作綱要」,在中央與地方政府機關主管下推行社區工作,並配合政府施政的組織;另外,依「社區總體營造」的政策精神,其又可主動向政府各部會爭取社造資源,發揮社區自主與社區參與等功能。因此,從政策面來看,我國社區發展在「綱要」與相關「社造」計畫的「雙軌」影響下,不但容易呈現出多元面貌,也實際牽動著社區治理的踐行。在這個長期受到關注的議題上,本文將藉著歷史回顧,發現我國社區發展政策的雙軌運作特徵與影響,其次,則由三個重要的社區案例:「桃米社區」、「南埔社區」、「土溝社區」,呈現出社區政策在雙軌間相互調適之可能。本文發現,社區組織在政策雙軌性下所產生的相互「取代」、「融合」或「分工」等特徵,將實質影響社區參與及社區自主性之實現,而此也是理解我國社區治理的重要基礎。
Since communities play a role as the unit in democratic practice, it's vital to consider the sense of community and community participation while discussing the operation of grassroots democracy. This research takes a look at Taiwan's community-building programs, first of all classifying communities in Taiwan to understand the workings of grassroots democracy within these communities from system and non-system aspects, thereby allowing construction of diverse connotations of community development. Using a qualitative approach, this study then examined interactions between residents and the internal organizations of the different community types to confirm the existence of community awareness and connections between community-building programs. This paper chose Taomi Community, Nanpu Community and Tugou Community to analyze the adaptation possible of dual community policy. Moreover, the study collated and analyzed interview results to review and evaluate community-building policies. By reconstructing the types of community development, government, community, residents, and governance networks were clarified. This article finds that the mutual "replacement", "integration" or "division of work" and other characteristics of community organizations under the dual community policy will substantially affect community participation and the realization of community autonomy, which is also an important basis for understanding community governance in Taiwan.