道路建設之生態補償研究:台灣實施案例經驗評析

Abstract

道路建設的形式皆為線形結構，並直接穿越土地，切割土地使用情形與生物棲地環境，使得動植物的生存空間逐漸碎裂，因此對於生物多樣性之影響上具重大意義。近年來因世界先進國家伴隨生物多樣性願景，開始了對於環境價值的喪失，著手制定生態補償的構想，其理念乃是於他處重建棲地環境，以彌補受損之生物棲地。現今我國道路建設計畫的施行，受到環境影響評估之環境保育法制規範，其中雖包括“迴避”及“減輕”之相關措施基礎理念，然而「補償計畫」與「土地取得」尚缺乏法令依據，使得環評面臨更新挑戰。因此本研究分析先進國家補償計畫，以及我國施行先驅案例之經驗，在既有體制架構下，建立台灣道路建設之生態補償制度。 本研究以個案研究法分析生態補償，選擇官田水雉復育區、南投交流道、三芝北投公路施行進行研究操作。補償機制推行應由國家整體發展來引導計畫施行，由上至下目標一致地推行。我國案例開創生態補償計畫的施行，計畫最早推行為高鐵水雉復育區，因此以傳統工程觀進行建設計畫，無法由計畫階段中及早進行保育作業；近年來我國在道路建設方面，加入生態之概念，要求工程計畫推行過程中加入生態考量，傾向於計畫階段之規劃理念，難以落實至實質層面，國道六號南投段建設雖投入生態環境為客體理念，因工程計畫之時間上壓力，仍有許多未盡完善之處。三芝北投公路為目前唯一創新理念，以生態環境為主要考量進行計畫，由此可看出工程建設推行上對於生態保育支持。 研究結果分析荷蘭施行生態補償成功要素與我國缺失，作為我國實施的借鏡，並提出適宜生態補償計畫實施步驟之建議，並為補償計畫制訂法源依據。實現補償計畫之重要因子，為對於補償環境之監測報告，施行監測能適時引導並調整補償的進行，朝著保育目標一步一步前進。

The form of all road construction is linear element, directly cross the land to segment land-use and natural habitat. It makes plants and animals’ habitat fragmentation, and influences biodiversity significantly. In recent years, many world advanced countries accompany with the biodiversity vision, and enter upon “ecological compensation plan”. The idea of compensate for loss environmental values from planning, and creation another ecological environment elsewhere. In Taiwan, implement road construction is hampered by current legal basis-Environmental Impact Assessment (EIA). The EIA include basis concept of “avoidance” and “mitigation”, but “compensation plan” and “land needed” lack of a legal basis for compensation principle. The environment impact assessment will face the renew challenge. Therefore, the study analyses advanced country (Dutch) and Taiwan implementing ecological compensation plan, and establishes the compensatory system under current framework of road construction. The study attempts by case study research and chooses Pheasant-tailed Jacana restorative area in GuanTian, NanTou section of National Expressway No. 6, and SanJhih-BeiTou Highway served as the study sample of actual analysis. Regarding mechanism of ecological compensation should guide by nation project, and top-down with the target accord. These cases implementing to start ecological compensation plan. The earliest promoting plan is Pheasant-tailed Jacana restorative area (by Taiwan High Speed Rail), and the construction project with tradition engineering concept. But it can't plan with environmental protect concept in initial stage. In recent years, we consider join ecological concept on road construction, and request the engineering project, but it is hard to practice. The case in NanTou section of National Expressway No. 6 developments to regard ecological environment as object, because of the pressure in time of engineering project, still can not do prefect. The plan of SanJhih-BeiTou Highway is creative principle, and regarding ecological environment as main consideration on the project. We can know nation shift the policy, and support the engineering promote for ecological conservation. From the result of experimental study, we can comprehend implementing fundamental elements of successful ecological compensation plan in Dutch. These elements will be utilized as an example for Taiwan, which recommend steps and establish a legal basis for ecological compensation plan. An important aspect of realizing the compensation plan is monitored in the form of ecological reports. Such monitoring may result adjustment of the measures in cases where the compensation objectives are achieved, and face conservation target step by step.