以制度分析與發展架構解析國家重要濕地評選制度

Abstract

《濕地保育法》於 2013 年 6 月三讀通過，2015 年 2 月正式施行，立法目的在於 促進濕地生態保育，並有兩大重點精神:「明智利用」與「零淨損失」。《濕地保育 法》執行過程中，國家重要濕地評選為首要階段，且濕地評選結果，即國家重要濕地， 為濕地法的政策標的，故本文認為國家重要濕地評選制度的分析十分重要。 在同一個國家重要濕地評選制度之下，不同濕地所面臨的結局卻是不同，有些 濕地順利被指定為國家重要濕地，有些則頻頻受阻;甚至在濕地法通過後，國家重要 濕地數量與面積不增反減。其中有什麼重要因素使得國家重要濕地評選制度產生變化， 是我們想知道的。因此本文將以制度分析與發展架構，藉由深入訪談與資料分析，了 解同一套制度會產出不同濕地評選結果的原因，並探討這些因素如何使得立意良好的 政策，實際執行後卻與期待值有所落差。 本文以國家重要濕地評選委員會為行動場域，檢視國家重要濕地評選制度架構 中的重要變數及其間之互動關係，發現在地社群、參與者與資訊對行動場域的影響最 為重大。濕地法通過後，整體政策社群氛圍對國家重要濕地是不友善的，而負面的外 在社群環境影響了行動情境中的資訊和參與者及其地位與行動。濕地法透露了濕地保 育與經濟開發的利益衝突，資訊介入行動場域，使利害關係人開始試圖影響委員會的 運作，參與者的行動與成本利益考量也隨之變化。而制度規則不完整使得外在因素更 容易影響行動場域的互動，進而產生不理想的結果。 為改善國家重要濕地評選過程與結果，本文建議應重視社群環境的溝通，例如 加強中央政府與地方政府之間的跨域合作、結合產業與保育、促進濕地認同，以利保 育政策的推行。此外，應明確化評選制度的規則，包含委員會成員的邊界規則及評選 濕地的評選標準，規則的明確化，除了減少委員會行動與結果間的連結的不確定性， 讓決策產出不偏離原始政策目標，亦減少委員會課責的困難度。

The Wetland Conservation Act was adopted in June 2013 and was officially implemented in February 2015 to promote the conservation of wetlands with two key principles, “wise use” and “zero net loss”. To implement the Wetland Conservation Act, the selection and evaluation of 'Taiwan's Wetlands of Importance' is the primary action, which decides the policy targets of the Act. Hence, it is essential to analyze the Taiwan's Wetlands of Importance selection and evaluation institution before looking in to the Wetland Conservation Act. Under the same wetland selection and evaluation institution, some wetlands are designated as Taiwan's Wetlands of Importance, while others are blocked or suspended. Worse still, after the Wetland Conservation Act is passed, the number and area of wetlands do not increase but decrease. Therefore, this article would explore the reasons why, in the end, a policy in good intention would fail to meet the expectation and the policy goal by using the institution analysis and development framework. Takeing the Taiwan's Wetlands of Importance Selection and Evaluation Committee as the action arena, the article finds that community, participants and information are the most influencial variables. After the adoption of the Wetland Conservation Act, the negative external community environment affects the information, participants and their position and actions in the action situation. As the Wetland Conservation Act reveals the conflict of interest between wetland conservation and economic development, the information interfere in the action arena and the stakeholders start trying to influence the operation of the committee. The participants thus modifiy their actions and benefit and cost considerations. Furthermore, incomplete rules make it easier for external factors to influence the interaction in the action arena, which leads to suboptimal results. This artice suggests that the communication with the community should be considered, such as strengthening cross-boundary cooperation between the central government and local governments, combining industry and conservation, and promoting communities’ commitment to wetlands, to facilitate conservation policies. In addition, the rules of the selection and evaluation institution should be clarified, including the boundary rules of the committee and the selection criteria. The clarification of the rules not only reduces the uncertainty of the connection between the committee’s actions and results, but also enhances the accountability.