影響基隆市山坡地違規使用管理成效之因素

Abstract

過去，對於山坡地管理議題的探討多集中在水土保持防治工程技術、相關法規及地理資訊等角度。本文則從公共行政領域中「基層官僚」的觀點出發，探討影響基隆市山坡地違規使用管理政策執行成效的因素有哪些，並分為五大研究問題：1.探討基隆市山坡地違規使用管理政策內容與各權責單位的組織架構。2.瞭解基隆市在山坡地違規使用管理上目前所擁有的資源是否充裕以及能否因應工作所需。3.分析基層官僚的特性是否呈現在基隆市違規使用山坡地的政策執行過程上？以及該特性是否影響承辦人員的工作態度和執行成果？4.探討山坡地水土保持違規使用管理考核制度的實施是否影響基層公務員政策執行態度與成效？ 5.以主要之研究發現為基礎，提出研擬改善現行水保相關法規及管理制度之政策建議。 研究架構參考林水波及張世賢（2006）對影響政策執行因素的研究，從政策問題特質、政策條件本身及外在條件三個層面探討，並重點討論六個影響政策執行的因素，包括標的團體、資源、執行機關決策原則、組織法規與權責分配、執行者態度及政策監督情況。 研究發現，基隆市的現行政策雖有明確法律規範與權責架構，但在權責分配上缺乏彈性；政策資源方面，尤其是經費及設備相對不足；基層公務員普遍採取保守的依法行政態度，較少行使裁量權；考核制度能有效促進政策執行效率，但在主動查報率及創新事項方面或有調整空間；標的團體的政策順服度高，然而僥倖心態可能造成違規案件量難以有效減少。 最後，本研究建議，一是適時增加經費以補充政策執行所需資源，提升效率；二是加強基層承辦人員的教育訓練，應對人力快速更替問題；三是加強宣導，減少民眾因法律不清而產生的違規情形；四是針對違法樣態及故意性調整裁罰標準，使裁罰更具適切性。

In the past, discussions on hillside management primarily focused on engineering techniques for soil and water conservation, relevant regulations, and geographic information. This paper adopts the perspective of " street-level bureaucracy " from the field of public administration to explore the factors influencing the effectiveness of policy enforcement regarding unauthorized use of hillside areas in Keelung City. The study is structured around five research questions: 1. Understanding the content of Keelung City's policies on managing unauthorized hillside use and the organizational structure of relevant authorities. 2. Assessing whether Keelung City currently possesses sufficient resources and capabilities to meet the demands of hillside management. 3. Analyzing whether characteristics of street-level bureaucracy manifest in the policy implementation process of unauthorized hillside use in Keelung City, and whether these characteristics affect the attitudes and performance of personnel handling the policies. 4. Examining whether the implementation of assessment systems for soil and water conservation on unauthorized hillside use influences the attitudes and effectiveness of street-level bureaucracy in policy implementation. 5. Based on the main research findings, proposing policy recommendations to improve existing regulations and management systems related to soil and water conservation.

The research framework refers to Lin Shui-Bo and Chang Shih-Hsien's (2006) study on factors influencing policy enforcement, exploring three dimensions: the nature of policy issues, policy conditions themselves, and external conditions. It particularly focuses on six factors affecting policy enforcement, including target groups, resources, decision-making principles of implementing agencies, organizational regulations and responsibilities, attitudes of implementers, and policy supervision.

Findings indicate that while Keelung City's current policies have clear legal norms and organizational frameworks, there is inflexibility in responsibility allocation. Resources for policies, especially funds and equipment, are relatively inadequate. Street-level bureaucracy tend to adopt a conservative attitude of strictly adhering to the law, exercising discretionary powers less frequently. Assessment systems effectively promote policy implementation efficiency, yet adjustments may be needed in proactive reporting rates and innovative initiatives. Target groups demonstrate high compliance with policies ; however, a sense of complacency or a luck mentality may hinder the effective reduction of non-compliance cases.

Finally, the study suggests: firstly, timely increases in funding to supplement resources needed for policy implementation to enhance efficiency; secondly, strengthening education and training for grassroots personnel to address issues arising from rapid turnover; thirdly, enhancing public awareness to reduce instances of non-compliance due to unclear laws; fourthly, adjusting penalty standards based on illegal patterns and intent to ensure more appropriate penalties.