與原住民(族)共管保護區的建構與挑戰

Abstract

隨著臺灣社會及政府對原住民族權利的重視，涵括式自然資源治理勢在必行。本研究以2021年至2023年執行林務機關委託與原住民共管保護區建構行動計畫為基礎，聚焦於M縣N鄉S族的保護區制度規劃。研究方法包括參與觀察及深度訪談。 研究目的透過行動歷程的撰寫，反思研究團隊作為政策促進者之操作，二來理解各行動者的行為動機與態度轉變。並透過制度分析發展框架 (Institutional Analysis and Development Framework)，比較既有夥伴關係互動模式及共管保護區治理模式間的異同，與各行動者偏好背後對制度之期望。發現制度變革對部落行動者之成本高於效益，導致參與意願低落，致使了保護區劃設不如預期。研究顯示，研究團隊企圖透過描繪文化生活地景，建構與地方族群共管保護區的正當性，但在社會經濟變遷下，呈現出多元價值觀的複雜人地關係。促成並展現多元價值觀的認同共識，應是文化生活地景建構過程中的關鍵。共管保護區作為涵括式自然資源管理，應將多元權益關係人的治理期待納入目標，如提供經濟誘因即為在地社區的重要考量。本研究期望能藉此行動經驗，提供推動共管保護區之政策制定者與促進者參考，促進參與式自然資源治理的發展。

As Taiwanese society and government increasingly prioritize the rights of indigenous peoples, inclusive natural resource management has become imperative. This study is based on the 2021-2023 Forest Bureau commissioned action plan for the construction of co-managed protected area with indigenous community, focusing on the institutional planning of the protected area in ‘S’ community, N Township, M County. The research methods include participant observation and in-depth interviews. The study aims to reflect on the research group’s role as policy facilitator through the documentation of the action process and to understand the behavioral motivations and attitude changes of various actors. Using the Institutional Analysis and Development (IAD) framework, it compares the differences between existing partnership interaction model and co-management governance model, as well as the expectations of each actor's preferences for the system. The findings reveal that institutional changes impose higher costs than benefits on community actors, leading to low participation willingness and thus resulting in the protected area designation falling short of expectations. The research indicates that the team attempted to establish the legitimacy of co-managed protected areas with local communities by depicting cultural landscapes. However, under socio-economic changes, this resulted in complex human-land relationships reflecting diverse values. The key lies in fostering and showcasing consensus on diverse values during the construction of cultural landscapes. As inclusive natural resource management, co-managed protected areas should incorporate the governance expectations of multiple stakeholders, such as providing economic incentives, which are crucial considerations for local communities. This study hopes to provide policy makers and facilitators of co-managed protected areas with actionable insights to promote the development of participatory natural resource governance through these experiential learnings.