邁向協同治理？權益關係人參與自然地景保育的機會和限制

Towards Collaborative Governance? Opportunities and Constraints for Stakeholder Participation in Natural Landscape Conservation of Taiwan

10.6161/jgs.2012.65.02

李光中(Kuang-Chung Lee)；王鑫(Shin Wang)；蔡嘉玲(Chia-Ling Tsai)

權益關係人參與 ； 自然地景保育 ； 社區與學校夥伴關係 ； 協同治理 ； stakeholder participation ； natural landscape conservation ； school-community partnership ； collaborative governance

地理學報

65期（2012 / 06 / 01）

27 - 52

繁體中文

2005年新修正的文化資產保存法將「自然地景」列為專章，開啟臺灣推動自然地景保育之新契機，然而目前尚缺乏具體推動架構和操作經驗。本文分析國內外相關文獻發現，結合公、私部門和社區等權益關係人的協同治理模式，是推動自然地景保育的重要策略。此外，自然地景保育範圍不應限於特殊地形地質現象，宜涵蓋周圍人與土地交互作用下的地景區範圍。本研究以透過林務局社區林業計畫推動社區參與自然地景保育之途徑為例，選擇臺東利吉惡地為研究個案，探討首要權益關係人參與自然地景保育之機會與限制。結果發現，「社區與學校夥伴關係工作平台」成為兩梯次社區林業計畫籌備和執行過程中，權益關係人最重要之溝通與協同規劃平台。社區居民和學校老師協同探索在地的自然地景、生態、產業和文化資源，並重新認取泥岩惡地對社區產業、生活和生態環境的關聯性。本研究亦發現，有十項因素影響社區和學校參與社區林業計畫的成效，包括專業知識與在地知識的互相需求性、社造計畫與教師教學和居民興趣的配合程度、凝聚力和領導力、社區和學校對彼此的認同與肯定、裁併校政策、夥伴關係工作平台的運作制度設計、教師和居民可投入的時間、教師流動率及相關因素、經費運用規範和利益分配的公平性、不同機關間社造計畫的競合等。其中主管機關社造計畫雖然是權益關係人行動能量的主要來源，但不相整合的社造計畫若帶給居民巨大的經費利誘和比較，有可能促發社區分裂和族群衝突，嚴重衝擊正在形成之協同治理機制。

The amendments of the Cultural Heritage Preservation Law in 2005 provide new opportunities for stakeholder participation in natural landscape conservation of Taiwan. However, very few studies have conducted on the topics of local stakeholder participation and community development. This research selected the Lichi Badland in Taitung County as the study area. The area is surrounded by two rural villages; each has a small elementary school. The theory of collaborative planning was employed to explore opportunities and constraints of natural landscape conservation, local tourism and community development. Many participatory forums were designed and conducted in two villages to enhance school-community partnership and participation in natural landscape conservation programs of the badland area.We found that the 'school-community partnership platform' was like a new bridge activating partnership between local communities and schools. Through regular panel discussion on the platforms and training workshops, local people and school teachers figured out a common ground of their interests and goals. They worked together to draw up and conduct several community projects which was for better understandings of relationships between local people livelihoods and the badland resources. Nevertheless, there are ten factors influencing school-community partnership, including mutual understanding between expert knowledge and local knowledge, fitness of community projects for school teachers' and local people's interests, leadership and cohesion, mutual respect and approval among school teachers and local people, school consolidation policy, operational mechanism of the school-community partnership platform, available time for participation, equal opportunity of benefit-sharing, stability of school teachers as well as competition of community programs supported by different governmental institutions. The last factor may jeopardize community cohesion seriously.

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