盤點台灣自然保育規範：演變、特色與驅力

Abstract

台灣的生物多樣性相當豐富，然而卻長期面對開發與破壞的壓力，需要透過制度規範加以管制。而制度規範的形成脈絡、發展情形等，將對生態環境的保育產生重要的影響。 本文透過側重於規範形塑歷程的方法，來觀察台灣自然保育規範從以前到現在的發展情形。同時也將歸納整體發展過程的特色，並針對形成自然保育規範的驅力進行分析。 在規範的演變發展上，本文認為可以依照時間序列，將台灣自然保育規範的發展分為依附發展、國際壓力、沉潛扎根及整合回應等四個時期。在依附發展時期裡，台灣的自然保育規範依附著經濟發展需求而發展。在國際壓力時期中，受到華盛頓公約與培利增補條款的壓力，台灣迅速形成部分的自然保育規範。而在沉潛扎根時期時，雖然在法律層面的規範變動減少，但在其他部分仍然則持續的增長。最後則是整合回應時期，此時開始出現整合性的法律來回應過去所遺留的問題。 而在規範的特色方面，本文則從立法模式、規範領域範圍的變化以及立法與行政的互動等三個面向歸納。在立法模式上，台灣早期分散立法的模式造就了雜亂漸增的現象，但近來似乎有向套裝立法模式靠攏的趨勢。而在規範領域範圍的變化方面，自然保育規範一開始多依附在經濟發展的領域內，逐漸的發展出自然保育規範領域的意涵，後來更出現與其他領域整合的需求。最後，則從從行政與立法的互動觀察，發現自然保育規範立法的核心力量出現了由行政權往立法權逐漸移轉的現象。 最後，就驅力分析而言，台灣的自然保育規範有經濟發展、國際影響、內國自主三大類型的驅力。與一般認為經濟與環境的衝突不同，經濟發展在台灣自然保育的規範發展上，曾經發揮推促的效果。而國際壓力除了顯著的制裁壓力外，柔性的影響也長期影響著台灣自然保育規範的發展。內國自主驅力的逐漸成熟，則有望成為台灣自然保育規範解決舊有問題的良方。

Taiwan has rich biodiversity, but has faced the pressure from development and destruction. So it needs norms to regulate. The way those norms forms will influence Taiwan’s ecological environment a lot. This thesis focuses on the legal process of Taiwan’s conservation legal regime. It observes the evolution of Taiwan’s conservation legal regime, generalizes the characteristics of the regime, and analysis the driving forces of the regime. Taking about the evolution of the regime, this thesis discovers that it can be separated into four eras: the attachment era, the international pressure era, the fallow and rooting era, and the integrated response era. In the attachment era, Taiwan’s conservation legal regime development was attached to the need of economic growth. In the international pressure era, Taiwan rapid formed so norms of the regime under the great pressure from CITES and the Pelly Amendment of the US. In the fallow and rooting era, there were few changes of the law, but other part of the regime continued to grow. And in the integrated response era, some integrated norms started to fix problems left from past. As the characteristics of the regime, we can generalize them from three different prospective: the models of legislature, the change of the concept of the regime, and the interaction between the administration and the legislator. Taiwan followed the scattered legislate model in early days, and showed the phenomenon of the disjointed incrementalism. But recently, it had showed the sign that it might shift to the set legislate model. And through the time, the concept of the conservation regime in Taiwan had expanded. Lastly, we can discover that the main force of legislation has been shifted from the administration to the legislator of the main force of legislation. Taiwan’s conservation legal regime has three main driving forces, the economic force, the international force, and the domestic conservation force. The economic force showed both promote and resist function. The international force influenced the regime by both gentle and tough ways. And in the end, with the growth of the domestic conservation force, the conservation legal regime might become more robust through time.