文化脫節的都市再生？以漢堡港城探討文化角色的制度困境與實踐侷限

Abstract

漢堡市為德國第二大城及第一大港，因經歷戰火摧毀與現代航運技術革新，使港口功能衰退，發展亦受限制。漢堡市在1990年代末期開始規劃漢堡港城計畫（HafenCity）進行都市再生，是歐洲最大計畫項目之一。該計畫透過大型旗艦場館與住商建設、歷史遺產保存及濱水區活化等方式轉型，不僅更新老舊港區，也創造觀光機會並建立在地意象。都市再生利於國家政府推動產業振興政策，對地方政府則有助於改善市容環境，並帶動民間房地產市場的發展。然而，在漢堡港城的發展過程中，文化雖以形象建構、地景塑造等方式出現在再生策略之中，卻未能成為都市再生的核心驅動力量，反而呈現象徵性實踐的傾向。相較於部分以文化主導再生的案例，漢堡港城採取更偏重經濟導向與旗艦建設的模式，使文化角色在治理架構及政策資源分配上處次要地位。此種文化與都市再生的脫節，不僅影響文化政策的實踐，也可能削弱城市的社會韌性與文化多樣性。本研究以漢堡港城為個案，探討文化在都市再生中的制度定位與實踐侷限。透過檢視再生政策中的治理結構與文化策略之間的關係，進一步辨識文化角色弱化的原因與影響。本研究期望補足既有都市再生研究中對於文化角色邊緣化的討論空白，並反思在當代都市競爭之下，文化如何從參與式實踐轉變為象徵性再現，其背後所揭示的權力關係與政策選擇。Hamburg, Germany’s second-largest city and primary port, experienced significant decline in port functions and development constraints due to wartime destruction and advances in modern maritime technologies. In the late 1990s, the city launched the HafenCity project as a major urban regeneration initiative—one of the largest of its kind in Europe. The project aimed to transform the old harbor area through flagship developments, residential and commercial construction, heritage preservation, and waterfront revitalization, thereby reshaping the urban landscape, boosting tourism, and forging a new local identity. Urban regeneration policies serve multiple interests: stimulating industrial transformation at the national level, enhancing the physical environment at the local level, and driving private sector real estate markets. However, in the course of HafenCity’s development, although culture was incorporated into the regeneration strategy through symbolic landscape design and branding, it failed to play a central role in the regeneration process. Compared to culture-led regeneration cases, HafenCity followed a more economically-driven and flagship-centered model, marginalizing the cultural sector in governance structures and resource distribution. This disconnection between culture and urban regeneration not only weakened the implementation of cultural policies, but also risked undermining the city’s social resilience and cultural diversity. This study takes HafenCity as a case study to examine the institutional positioning and practical limitations of culture within urban regeneration. By analyzing the interplay between governance structures and cultural strategies in the regeneration process, this research identifies the structural causes and consequences of weakened cultural roles. It aims to address the gap in urban regeneration literature regarding cultural marginalization, and reflect on how culture, under contemporary urban competitiveness, shifts from participatory practice to symbolic representation—revealing deeper questions of power and policy choices.