台灣從一九六五年由內政部主導的社區發展政策開始，到一九九四年由文建會推動的「社區總體營造政策」至今的社區發展歷程，讓社區發展有了另外一種不同於以往的面貌。而在台灣特殊的政治環境及傳統文化系絡下，各種不同的社區發展政策會讓社區這個概念受到不同的詮釋及影響。究竟是要將社區看作是一種中央控制的工具；一種地方自治、公民意識的培養地；一個有地域性質的實體；或是一個抽象的象徵意義。本文將從一九九四年迄今的社區總體營造政策著手分析，探討各時期社區概念所代表的意義。不論是從單一政策形成或是從政策變遷的過程來研究社區議題，都必須瞭解影響政策形成或變遷的重要事件、參與角色、以及時空背景。因此，本文將採用政策網絡以及政策變遷的概念來分析瞭解台灣的社區總體營造政策，以及社區在政策中被賦予的意義和功能。研究發現社區一詞，已經慢慢從只強調組織、集體行動的，走向賦予權能、為公共利益著想的概念；社區總體營造政策的變遷則是以在現行政策基礎上進行修改的「政策賡續」為主要模式；而社區總體營造政策的網絡主要是受到政府和重要人士理念的主導。文末建議，應將社區總體營造視為一種達成目標的手段，以及尋求在「由上而下」以及「由下而上」兩種政策推動途徑之外的合作模式。

Since politics environment and traditional culture context of Taiwan have changed over time, there are many different phases and forms of “Community Development Policy” from 1965 till now, therefore, how “Community Development Policy” influenced by environment and culture, also influence our perspectives of community as well as the whole policy. No matter what your concern on Community’s study, we have to figure out the important events, stakeholders and context of policy. This paper is intended to utilize community policy by the concept of policy network as well as policy change, and the meaning as well as the functions of community in different policies. The results are include of the meaning of community is more empowerment and public-driven then before, furthermore, change of policy is basic on “policy succession”, and influenced by government as well as the key person.