從都市農業到都市農業生態學： 檢視臺北市關渡平原之永續規劃與都市轉型

Abstract

永續發展作為當今環境規劃治理的主流論述，正反映了生態現代化（ecological modernization）的進程，形塑以生態為核心的政治社會革新。在此背景下，農業被納入生態環境政策的公共領域範疇，而都市農業生態學（urban agroecology）的視野，更界定了當代都市農業在永續都市規劃中的角色，同時也提示了一種多元行動者參與的網絡治理模式。本研究以臺北市關渡平原為研究場域，旨在探討在當前永續發展的願景下，關渡農業如何在多元行動者的治理網絡中建構，以及朝向永續轉型面臨的挑戰。關渡平原作為臺北市代表性的大面積農業區，其發展過程反映了「生態」概念在都市治理中的轉變，以及都市農業定位的變遷：（1）政府干預下，關渡平原被劃定為滯洪區域，而被排除在都市發展範疇之外；（2）非政府組織的協同治理下，對關渡濕地保育體現了「生態」概念，然而實際上傾向於對生態區域圈地劃界的保護，農業並未納入該生態範疇中；（3）在當前階段，在多方行動者的治理網絡下，農業重新被置都市永續發展的策略中。此階段的治理模式，呈現了具有層級性的政策網絡（policy network），在以數個關鍵行動者為核心的社群尺度上，體現行動者具有共識的政策社群（policy community）特徵。然而，在關渡平原整體的尺度上，各個政策社群對於生態系統服務的認知有相異的認知，而整體呈現分散、無共識的議題網絡（issue network）的特徵。本研究進一步檢視當前關渡農業發展面臨的轉型挑戰，包括議題網絡的運作缺乏對生態系統服務價值的整合，以及機構制度路徑依賴下的治理的片段化，導致多方行動者之間缺乏明確共同目標和發展進程。而面對新的外部變動，學習簇群（learning cluster）的新協作框架致力於促進行動者間的知識及經驗共享，並以目標明確的統合性策略架構面對當前治理片段化的發展課題，進而避免路徑依賴的轉型困境，具有開創創新規劃政策的潛力。

Sustainable development, as the central discourse in contemporary environmental planning, reflects the process of political and societal transformation within the framework of ecological modernization. In this context, agriculture is integrated into the domain of public environmental policies; furthermore, the perspective of urban agroecology defines the role of urban agriculture in sustainable urban planning. This study focuses on Guandu Plain, a large-scale agricultural area in Taipei, aiming to explore how urban agriculture is shaped within a multi-stakeholder network and the challenges of sustainable transformation. The development process of Guandu Plain reflects the evolving concept of "ecology" in urban governance as well as the shifting positioning of urban agriculture: (1) under government intervention, Guandu Plain was designated as a flood detention area and excluded from the scope of urban development; (2) through collaborative governance by NGOs, the ecological concept was embodied in the conservation of Guandu Wetland, yet leaning towards protective delineation of ecological zones, excluding agriculture; (3) In the current phase, agriculture is reintegrated into strategies for urban sustainable development within a multi-stakeholder governance network, which is characterized by a hierarchical policy network, with several key stakeholders forming policy communities, embodying a consensus among actors. However, at the overall scale of Guandu Plain, different policy communities exhibit disparate perceptions of ecosystem services, resulting in a decentralized, consensus-lacking issue network. This study further examines the transformative challenges, including the lack of integration of ecosystem service values and fragmentary governance resulting from path dependency, leading to an absence of clear common goals and developmental processes among stakeholders. In the face of external changes, a new collaborative framework of learning cluster seeks to foster knowledge and experience sharing among stakeholders, also employs comprehensive strategies within a goal-oriented framework, thus avoiding the pitfalls of path dependency and showcasing the potential to innovate planning policies.