從彈性治理與政策網絡的角度探討共享經濟的治理策略–以Airbnb為例

共享經濟近幾年在世界掀起一股浪潮，其概念是將自己身邊閒置的資源或空間提供給需要的人，讓它們能夠做更有效的利用，並且能夠讓提供者賺取報酬。共享經濟近年來發展的型態越來越多元，從叫車、外送到住宿都可以看到共享經濟的影子。隨著科技的發展，提供者和使用者雙方只要透過共享經濟平台和app就可以完成交易，滿足我們各種生活上的需求。雖然共享經濟有許多優點，相反的它可能與當地的法規、政策或是既有合法業者產生衝突。本研究以旅宿型共享經濟Airbnb作為研究對象，並且以公部門的角度探討Airbnb來台後對於政府和當地業者產生哪些影響。相較於其他國家或城市，台灣政府目前沒有將Airbnb和它平台上的日租套房納管，政府亦沒有針對他們制定相關法規，僅就以目前的法規取締及處罰Airbnb和日租套房業者，造成政府在取締及處罰的過程中遇到許多困境。另外，Airbnb和日租套房在台灣產生許多爭議如安全和消費糾紛的問題，而且日租套房經營的成本遠比合法旅宿業者低，甚至可能都沒有繳稅，造成日租套房和合法旅宿業者在不公平的基礎上競爭。本研究透過次級資料分析法與深度訪談法，蒐集Airbnb、觀光局(中央政府)、地方政府、合法旅宿與日租套房業者等利害關係人的立場以及意見。首先，本研究透過政策網絡的概念，探討彼此間互動的情況，並且釐清各個政策利害關係人彼此間的關係。接著，本研究將彈性化政府與彈性治理的概念導入旅宿型共享經濟，探討政府各層級管理旅宿型共享經濟的彈性化的程度。最後，嘗試解決Airbnb和日租套房產生的問題，並且提供政府適合管理旅宿型共享經濟的方式，除了能夠維護合法旅宿業者的權益，同時能夠讓共享經濟發揮它原有的本質，讓台灣的旅宿的選擇更多元，共享經濟在台灣也能夠發展的更為順利。

關鍵字

共享經濟；短期租賃； Airbnb ；政策網絡；彈性治理

並列摘要

The sharing economy has set off a wave in the world in recent years, the concept of the sharing economy is to provide one's idle resources or space to people in need, which can use them effectively and enable providers to earn rewards. The development of the sharing economy has become more and more diverse in recent years, you can see the sharing economy from car-hailing and food delivery to accommodation everywhere. With the development of technology, both providers and users can complete transactions through the sharing economy platforms and apps, which can satisfy our various needs. Although there are many advantages of the sharing economy, on the contrary, it may conflict with local regulations, public policies or traditional industries. The study takes the lodging-type sharing economy as the research object, and focuses on the impact of Airbnb on the local industry from the perspective of the public sector. Compared with other countries or cities, Airbnb and short-term rentals have not yet been managed by the government. Also, there are no any laws and regulations for Airbnb and short-term rentals, but only bans and penalizes Airbnb and operators of short-term rentals with the current laws and regulations, causing the government encounters many difficulties in the process of banning and punishment. In addition, Airbnb and short-term rentals have caused many disputes in Taiwan, such as safety and consumption disputes. Moreover, the operating cost of short-term rentals is much lower than that of hotel industry operators, and they may not even pay taxes, causing operators of short-term rentals and hotel industry compete on an unfair basis. The study uses secondary data analysis and in-depth interview methods to collect the positions and opinions of stakeholders such as Airbnb, Tourism Bureau (central government), local government, hotel industry and short-term rentals operators. First of all, the study uses the concept of policy network to explore the interaction between each other and clarify the relationship between each policy stakeholder. Subsequently, the study introduces the concepts of flexible government and adaptive governance into the lodging-type sharing economy, and explores the degree of flexibility in the management of the lodging-type sharing economy at various levels of government. Finally, trying to solve the problems caused by Airbnb and short-term rentals, and provide the government with a way to manage the lodging-type sharing economy. In addition to safeguarding the rights and interests of operators of hotel industry, it also allows the sharing economy to give full play to its original nature, making Taiwan’s accommodation options more diverse, and the sharing economy can also develop more smoothly in Taiwan.