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標題: | 農田水利會組織制度與臺灣水資源經營關係研究 Study on the Relationship between Irrigation Organizations and Water Resources Management System |
作者: | Chien-Tsun Lin 林建村 |
指導教授: | 陳信雄(Hsin-Hsiung Chen) |
關鍵字: | 水資源經營,農田水利組織,公法人,河川基流,水文瀝線, water resource management,irrigation organization,public corporation,stream base flow,hydrograph, |
出版年 : | 2011 |
學位: | 博士 |
摘要: | 臺灣降雨豐沛,歷年平均降雨量約2,500mm,為世界平均值的2.6倍,但因受限於臺灣自然環境之特性,降雨大部分逕流入海,實際利用之水資源不及降雨量的25%。隨著人口增加及產業發展,臺灣水資源利用情形已達潛在水資源供應量的上限,水資源供應與需求處於脆弱及敏感狀態,因此,如何提供穩定的用水來源,是為當前水資源政策之重要議題。
臺灣水利事業的發展肇始於農業的需求,隨著土地的開發、水利技術的提升,以及水利組織的建立,水利的管理制度逐漸完備,因此,農田水利組織在臺灣水資源供需體系中具有重要地位。本研究經由歷史制度的研究途徑來瞭解農田水利組織制度的發展與變遷歷程,並從農田水利會組織制度的演替過程,探索各行動者間的互動狀況,以尋求農田水利組織制度變遷的原因及未來可行的定位。本研究認為,17世紀初期荷蘭人為尋求經濟上的利益,漢人為尋求生存的機會,將臺灣的經濟型態從食物來源不甚穩定的漁獵與放牧時期,推向具有固定社會結構之農業時期;鄭氏統治時期的農業移民潮,建立了血緣及地緣關係的宗族社會,農業聚落的形成使得農業的活動範圍持續擴展;清政府200餘年的統治期間,因農田水利事業大幅度發展,帶動了耕地的水田化,但此成果卻是建立在私領域的關係,政府部門並未在此制度的建構過程中設立相關監督管理的制度與法規;臺灣的割讓使臺灣進入西方的政治體制及資本化的殖民社會,日本基於其國內政府體制建立之經驗及其國家利益,經由舊慣調查及法律與地方制度的建立,改變臺灣過去的法制與行政體系,並透過水利設施及水利組織的公共化,逐漸改變過去屬私領域的農田水利事業經營模式,建立起具公法人身份的公共團體管理制度,使農田水利事業的組織制度發展到新的路徑。 戰後因政府承接體系觀念之差異,農田水利組織一度發生定位不清之窘境,但在農業培養工業的經濟政策下,農田水利設施受到相當程度之重視,農田水利組織的公法人定位及其法制亦得因之延續。自1960年代起,臺灣因產業結構的改變,農業生產陷入困境,農田水利會的經營環境亦因之受到影響,在社會變遷及農業經營環境持續惡化的衝擊下,1988年所爆發的農民請願事件使農田水利會走向政府強力監督的路徑,除在農田水利會組織通則內明定會長及會務委員遴派的制度外,並曾一度往政府機關之方向改制,但歷史並未朝向已制定之法規方向發展,在農田水利會本身及相關行動者對新制度的抗拒下,其組織體制反而往完全自治的路徑發展。 依據臺灣地區水資源開發綱領計畫,2021年以後臺灣水資源在需求面之量化目標為總用水量不超過200×108m3,其中農業需水量120×108m3、生活需水量35×108m3、工業需水量30×108m3、保育需水量15×108m3,然從潛在水資源供應結構觀察,臺灣穩定之年河川基流量為152×108m3,水庫調節量為48×108m3,合計為200×108m3,約等同於臺灣地區水資源開發綱領計畫所規劃之需求量,惟若考量臺灣水庫淤積情形,則臺灣每年之潛在水資源則降為190×108m3,略低於前開之規劃需求量,雖仍能供應農業、生活及工業之需水量,但已達臺灣潛在水資源供應量之上限,因此,從臺灣現行所規劃之水資源利用結構觀察,將易受到降雨之時空分布影響而產生調度上之問題。就臺灣未來水資源經營策略而言,除減緩用水外,維持穩定潛在水資源的供應環境亦為可行之政策方向,尤其是森林及水田在水資源的涵養功能。 臺灣早期水資源的開發以農田灌溉用水為主,20世紀以後新增水力發電及公共給水,惟初期以水力發電為重點,近年雖因公共給水需求增加而重視公共給水設施之投資,但仍不足以供應臺灣現行生活及工業用水所需,造成公共給水與灌溉用水競合之窘境,尤其在乾旱的年度更為嚴重。農業用水雖為臺灣各類標的用水之最大宗,但其對河川基流的涵養有重要的貢獻,且農業用水及其相關設施亦直接或間接作為各類用水的供應來源或媒介。農田水利組織為灌溉用水最主要的支配者,日治以後之灌溉設施多由政府與農田水利組織投資興建,工程完成後移交農田水利組織管理營運,興建及營運管理所需費用則由農田水利組織向會員或受益人徵收,因此,農田水利組織對於臺灣水資源經營體系之影響至鉅。臺灣的農田水利組織在多年的經營下,已建立全面性之水資源分配、灌溉網路,以及經營管理系統,這個經營體系在可利用水資源的供應機制中佔有關鍵地位,因此,未來應加強農田水利組織在公共用水供給面之角色。 The mean annual rainfall in Taiwan is about 2,500 mm, nearly 2.6 times the world average. However, most of this rainfall flows directly into the sea because of limitations of the natural environment. As a result, the essential water resource that can be used is less than 25% of this rainfall total. With an increase of population and industrial development, consumption of water resource has reached the level of potential water supply, making for a vulnerable and sensitive water situation. Therefore, the provision of stable water resource has become a serious issue in water management strategy. Water conservancy in Taiwan was founded on the needs of agriculture, resulting in a thorough management system and excellent conservancy techniques. Therefore, the irrigation organization is important to this water management system. This study uses a historical, institutional approach to explore the institutional formation and development of irrigation in Taiwan. Also investigated is the interaction between institutions and actors in the formation of irrigation organizations, to discover reasons for organizational system changes within them, and the future prospect. This study shows that the Vereenigde Oost-Indische Compagnie (VOC) and Hans propelled Taiwan into an agricultural society in the 17th Century, because of economic interest and subsistence, respectively. The Zheng Dynasty (Koxinga) pushed Taiwan into a rural society based on a consanguine relationship, expanding plantation fields because of agricultural immigration. The Ching Dynasty improved water conservancy techniques and built substantial paddy fields during their governance of more than two centuries. However, these achievements of the Ching period were established on the private sector, and the government did not set up administrative systems and regulations for irrigation affairs. Taiwan was brought into a western political system and became a colonized society in the late 19th Century, when it ceded from the Ching Dynasty to the Japanese government. The Taiwan Government-General constructed a government institutional system through investigation of traditional Taiwanese customs and laws, which were based on the national interests and experience of Japan. The Taiwan Government-General also gradually established water resource-related affairs on public fields. This changed the formal management system of irrigation, and this strategy consequently pushed Taiwan toward a new management system for irrigation. After the Second World War, different governance policy between the Japanese and Nationalist Government muddled the development of irrigation, and its management became awkward. Nevertheless, this predicament caused irrigation development to revert to public corporations. Though irrigation association had been established by law, it was posed in a greater dilemma after the transformation from agriculture to industry. However, the irrigation system was given full autonomy in 2001, and its execution became a responsibility of the government administration. Based on the Guiding Principles of Water Resource Development in Taiwan, it is predicted that the demand for water resources will be approximately 200×108 m3 by 2021, with water consumption for agricultural, domestic, industrial, and conservation purposes accounting for 120×108 m3, 35×108 m3, 30×108 m3, and 15×108 m3, respectively. The total annual potential water supply is 200×108 m3, including stream base flow of 152×108 m3 and release from reservoirs of 48×108 m3. This amount of potential water supply is apparently in accordance with water utility planning, but it is insufficient when the reservoir sediment is considered. Therefore, the total annual potential water supply will be slightly smaller than water demand in 2021, posing a slight water deficit. These findings indicate that the potential water supply for Taiwan is vulnerable and sensitive, despite the large amount of rainfall. These results highlight the importance of stream base flow conservation and the water-holding capacity of forests and paddy fields, which are important in the generation of stream base flow in terrestrial biospheres. The early development of the water resource in Taiwan was based on irrigation or hydropower generation. Although the government has invested in public water supply facilities per the needs of those activities, it is not sufficient to meet the needs of domestic and industrial consumption. As a result, competition between irrigation and public water demands has caused a dilemma for the water management system, especially in drought years. For many years, irrigation facilities targeted for agriculture have instead been used indirectly for public water supply. Although agriculture consumes the most water, it is also important for recharging stream base flow. Irrigation organizations have the priority for water use in Taiwan, so they are crucial parts of the water management system. Since these irrigation associations have long ago established comprehensive systems of water allocation, irrigation networks and technology, operation and management, it is important to advance these functions for the benefit of public water supply. |
URI: | http://tdr.lib.ntu.edu.tw/jspui/handle/123456789/24098 |
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顯示於系所單位: | 森林環境暨資源學系 |
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