國家自然保護區管理制度調整之研究-以國家公園為例

Abstract

臺灣於1972年國家公園法頒行，於1984年成立第1座國家公園以降，雖然當初立法時，或許在尺度與應用方面有許多辯論。然整個國家公園立法精神，乃沿襲60年代當時世界保育主要潮流，以美國黃石國家公園：「人與自然分離」原則訂定。臺灣國家公園3、40年的演進與發展，在經營管理制度發生困境及瓶頸，又因國際政治孤立，非聯合國之國際保育組織會員，因此在國際保育思潮演變過程，缺乏直接與廣泛的認知，對於此時國際保育已朝新趨勢發展，惟我國在跨學科跨領域的管理哲學思考似乎停留於紙上談兵階段。 在全球治理體系中，全球規制處於核心地位是人類共同遵守。因此本研究以IUCN保護區分類方式出發，促使國內將國內制度的定義擴展到國際制度。本研究之目的：一、從IUCN自然保護區經營管理目的及先進國家美國、日本及英國國家公園經營管理制度，探討我國國家公園分級分類之型構。二、從新制度主義理論之框架下，釐整歸納各國家公園各國家公園經營管理之議題及制度變革之動能及限制。三、從國際保護區管理趨勢、新制度主義理路觀點，提出我國國家公園管理制度變革之建議調整模式。 依據本研究經文獻分析法、比較歸納及質性研究後發現，我國國家公園經營管理議題，包括：遊憩服務與遊憩安全重視、原住民族議題的衝擊：傳統慣俗及祭祀文化的競合及夥伴關係的營造、與地方政府的互動、尚無法有效整合區域的發展，缺乏跨域治理機制、應尋求國家公園價值及定位、處財政劣勢，失去政策主導優勢、私有土地無法徵收損失補償等。30年演進及發展，國家公園已成官僚體系，除捍衛己身利益外，排斥外來督促變革。 本研究結論與討論： 一、經本研究歸納國家公園制度及經營管理議題結論：我國國家公園應分為三級三類管理。經營管理制度議題及制度調整應著重在：（一）環境治理能力的提升；（二）地方發展壓力的疏導。 二、新制度主義理論框架下驗證發現：（一）制度變遷不僅往鑲嵌或趨同性的穩定、停滯和慣性，在保護區新趨勢改變軸線調整成為動態狀況；（二）制度發生變革或調整的過程，經常像鐘擺般擺盪下調整，無法立即穩定改變；（三）隨著以「行動者為中心的制度主義」理性制度主義的公民參與、共管機制等制度，在面對國家公園治理制度變革及調整，將占有一席之地，不再以菁英模式進行。 三、本研究建議：（一）我國國家公園應依據IUCN經營管理目標及國外模式採以分級分類管理，妥以回應國際保護區之經營管理策略。（二）國家公園管理主體人力及財務機制應積極導入跨域治理A+CORP 模式，讓國家公園成為真正公共財（public goods）（三）經營管理制度調整機制缺乏環境監測，應建立有環境負載分區（Environmental load Zoning）管制基準機制。

National Parks of Taiwan is based on the National Parks Act of 1972, enacted in 1984, established a National Park dynasties, although the original legislation, perhaps a lot of debate in the scale applications. However, the spirit of the legislation for the entire National Park, is followed the main trend of the 1960s was the world conservation to Yellowstone National Park, USA: 'Man and Nature separation' principle set. 3,40 years of evolution and development, the Taiwan National Park in the operation and management system difficulties and bottlenecks: the international political isolation, non-member of the United Nations, the international conservation organization, and therefore the evolution of the international conservationist thinking, the lack of direct and extensive cognitive. For the international conservation have been made towards the development of new trends, provided our philosophical reflection in interdisciplinary cross-cutting management seems to remain in the planning stage. In the system of global governance, global regulation is at the heart of it is human to abide by. Therefore, this study IUCN protected area categories, prompting the domestic expansion of the definition of the domestic system to the international system. The purpose of this study: one from the IUCN Nature Reserve operations management purposes and advanced countries, the United States, Japan and the United Kingdom National Park operation and management system, to explore our national parks hierarchical classification of type structure. Second, under the framework of the new system theory, determined the entire National Park at the implementation of the study plan, group interviews and in-depth interviews, summarized on the question of the operation and management of the national park and the kinetic energy and the limitations of the institutional change. Third, from the trend of international protected area management the new institutionalism Way viewpoints proposed change of our national park management system proposed adjustment mode. According to this study, the literature analysis method, comparative summarized and qualitative research found that, of the national park operation and management issues, including: recreation services and recreational safety emphasis on aboriginal issues of impact: traditional customary customs and ritual culture of competing and partner relations the building, and the interaction of the local government, is still unable to effectively integrate the development of the region, the lack of cross-domain governance mechanisms, seeking value and positioning of the National Park, located in financial disadvantage, the loss of policy dominance, privately owned land can not levy loss compensation. 30 years time, has become a bureaucratic system of national parks, in addition to defend relies instead on the interests of exclusion alien urge change. In this study, the conclusions and discussion that：(A)The study concludes that the national park system and the operation and management issues of our national parks should be three levels of three types of management. (B)Operation and management system issues and system adjustment should focus on: (a) enhance the ability of environmental governance; (b) local development pressures to ease. The new institutionalism verify that: (A) institutional change not only to the mosaic or the stability of the convergence, stagnation and inertia to change axis adjustment become dynamic situation, new trends in protected areas. (B) regime change or adjustment process, often in the adjustment or temporarily unable to change the situation like a pendulum swinging (C) with the citizens to participate in policy and consideration of system, system 'actors' rational institutionalism protect the control of institutional change and adjust in the face of the National Park, the place is no longer elite governance model. Third, this study suggests that: (A) our national park management should be adopted in accordance with the IUCN management goals and abroad mode hierarchical classification properly in response to international protected area management strategies. (B) The National Park main human and financial mechanisms should actively import cross-domain Governance A + CORP mode to the national parks to become a true public goods (public goods) (C) business management system adjustment mechanism for the lack of environmental monitoring should be established environmental load partition (Environmental load Zoning) control reference mechanism.