分權、參與及保護區經營管理──以宜蘭無尾港與高雄三民楠梓仙溪野生動物保護區為例

Abstract

近二十餘年來，以社區為基礎的地方分權式的保護區經營管理方式，與傳統上以美國黃石國家公園為主的中央集權式經營管理模式間的比較與競合，一直是國際保育社會的熱門話題。其中，如何將社區(當地社群)，納入經營管理的機制與運作體系中，如何建立起管理權責機關與在地脈絡的互動關係，進而共同分享決策的權利，在在為保育人士所關注。本研究以宜蘭縣無尾港與高雄縣三民鄉楠梓仙溪野生動物保護區為例，探討以地方分權為取向的保護區經營管理體系與運作機制所遇到的問題。兩個個案的分析顯示，野生動物保護區雖然以地方政府為主要的經營管理體，卻仍維持有中央集權的特質，需要充分的經費支持，方能維持整體的品質。決策權與行政權的下放需要經費等資源的配合，也需要政府官署與各權益關係者共同分享。經濟誘因則為爭取當地社群支持的重要手段，除資源利用外，須有資訊公開收益的分配機制，俾以建立與相關權益關係者的互動管道。保護區的經營管理宜有明確的目標、彈性的架構、與開放的態度，以能容納不同的意見與立場，建構因應多變情勢的體制。

While traditional centralized approaches for protected area management, such as the Yellowstone National Park model in the USA, have been popularly adopted in the world, in the last two decades, there has been increasing interest in decentralized and participatory approaches based on the local community. However, there is debate within the international conservation community about the relative merits of these two approaches. Despit these discussions, conservationists pay attention to ways of including the local community in management institutions of protected areas, building links between authorities and the local community, and sharing the power of policy making. This study uses the Wu-wei-Kang Wildlife Refuge in Ilan and the Nan-zi-shin River Fresh Water Fish Wildlife Refuge in shan-ming, Kaohsiung as case studies in order to discuss issues of management for protedcted areas. Analysis of these case studies shows that the current wildlife refuge system has a number of characteristics of a centralized approach despite the fact that the local authority is designed and designated as its major management body. This study reveals that this kind of management style needs sufficient financial support to maintain its management quality. It also reveals that the transfer of policy-making and implementation authority from central to local government also needs the support of budget and power sharing between government agencies and stakeholders. Economic incentive is one of the main tools that may be used to ensure recognition of the local community. There must be transparent access to information and a delicate benefit distribution process other than resources use, in order to develop interactive communications with stakeholders. Overall, it is necessary to have clear objectives, flexible frameworks and open attitudes in order to create a healthy forum for different idas and positions and to develop adaptive protected area management for diversified situations.