臺灣保護區經營管理效能評量之現況檢討與展望-以METT-4的引進與操作為例

Abstract

保護區是生物多樣性現地保育的主要與重要工具，其經營管理效能反映著保護區保育目標的達成度。本研究回顧臺灣引進與實踐保護區經營管理效能評量，尤其是經營管理效能追蹤工具 (METT) 的採用，依隨實務操作評量的機會、工作坊的過程，加上訪談，收集承辦人員的意見與回饋，探討評量與保護區經營管理實務上的連結與成效。相關評量對保護區經營管理實務的助益，係以Hockings et al. (2006) 所提出的四項經營管理效能評量目的來檢視。 結果顯示，經營管理評量可以釐清保護區的價值與目標、分析威脅壓力、進行經營管理評量，並訂定後續的重要工作項目，達到「提供適應性經營管理」之效果。評量結果可提升工作項目預算編列的正當性，「協助了保護區資源的有效分配」。在評量的過程中，保護區機關、現場人員、在地社區等權益關係人的參與，促進各方的溝通和分工，提供多樣性的觀點並參與保護區的規劃和檢討，而達到「促進問責制和透明度」與「幫助社區和權益關係人建立共識並促進保護區價值」之目的。 然而，在實務上仍有許多需要改善的地方，如：缺乏基礎資料、經費與人力不足、評量結果與經營管理計畫書的工作項目缺乏連結等。本研究建議：(1) 保護區進行評量後，應要有後續人力與經費的投入，以改善經營管理的缺失和減緩威脅壓力；(2) 保護區應持續蒐集調查與監測資料，以利後續保育價值與目標的追蹤；(3) 中央主管機關應思考將評量體制化的可能，並將經營管理規劃邏輯整合入經營管理計畫的格式。

As protected areas being the main and key tool of in situ conservation on biodiversity, management effectiveness can reflect the degree of them to achieve biodiversity conservation. This study reviewed the introduction and implementation of management effectiveness evaluation on protected areas in Taiwan, a special focus was put on the adoption of Management Evaluation Tracking Tool (METT). Through the evaluation process and interview, this study collected feedback and opinions from protected areas managers, to explore the links between evaluation and practice of protected area management and its effect based on the four purposes of management effectiveness evaluation proposed by Hockings et al. (2006). The results showed that it was possible to achieve adaptive management, while clarifying the values and objectives of the protected area, analyzing its threats and pressures, evaluating management effectiveness, and identifying crucial management actions. Also, it was able to support legitimacy of budget planning by the evaluation results, which contributed to effective resource allocation. Throughout the evaluation processes, stakeholders like the protected area agencies, site staff, local communities, and etc. were included. This increased communications and division of work, promoted accountability and transparency and helped building up consensus among stakeholders to support protected values. Nevertheless, there were still several points needed to be improved on implementing protected area management effectiveness, such as, lacking baseline information, insufficient budget and human resources, poor links between evaluation results and work items of the management plan, and so on. This study suggested: (1) Human resources and funding for the following should be arranged to address the management deficiencies and to alleviate threats and pressures of protected areas; (2) Survey and monitoring should be conducted continuously to trace value and objectives of protected areas; (3) It was necessary to institutionalize the management effectiveness evaluation, included in the protocol of routine reviewing and amending for management plans of protected areas.