台灣非都市土地調適氣候變遷的資源治理之研究-以高屏溪流域為例

Resource Governance for Adapting Climate Change in Non-Urban Planned Area of Taiwan – A case study of Kao-Ping River Basin

劉欣怡(Hsin-Yi Liu)

指導教授 ： 黃書禮

國立臺北大學/公共事務學院/都市計劃研究所/碩士(2011年)

摘要

台灣非都市土地過往至今的利用情形，在規劃與管理上存在一些問題，如非都市土地依現況編定缺乏整體土地使用計劃引導、編定後之各類土地使用申請變更案逐日增加、違法使用取締不力等，加上近年來氣候變遷的衝擊之下，非都市土地變得更加敏感與脆弱，當極端氣候事件風災來襲造成兩三千公釐的豪雨量，各地便出現大小不等的崩塌、土石流與淹水等災情，非都市土地該如何調適才能有效減少極端氣候事件所帶來的威脅呢？根據國外各項研究指出，過去資源管理出現問題加上氣候變遷之極端氣候事件，更暴露了當前資源管理制度的脆弱性與無法應付當前及未來的衝擊，提出資源治理的概念，應從過去單一由上而下的資源管理，演進至須由各個行動者的水平與垂直網絡間相互協商合作、制定共同目標之資源治理，網絡行動者包含政府、民眾與NGO組織。
本研究案例地區為2009年受氣候變遷之極端氣候事件—莫拉克颱風侵襲造成最嚴重災情的高屏溪流域，透過地理資訊系統疊圖分析功能，將非都市土地使用編定圖、災後崩塌區域圖、各目的事業主管機關管轄範圍圖等圖資，歸納非都市土地的問題類型與分布地區，透過與內政部營建署、行政院農業委員會林務局與水土保持局、高雄市與屏東縣政府、NGO團體及當地民眾訪談，進而得到：一、了解過去非都市土地規劃與管制本身存在之問題；二、描繪非都市土地資源治理的網絡互動關係；三、因應未來氣候變遷對非都市土地所產生之衝擊予以調適方式。訪談結果顯示台灣非都市土地並沒有符合資源治理的網絡中行動者共同參與制定共同目標，民眾對極少參與無關自身之利益之公共事務、NGO團體在於參與政策制定的力量不夠強大、各部會單位的協商機制也尚不理想，發生權責重疊或不清時的推責情形。目前因應氣候變遷所做的調適行為有三大方向：各部會推動的策略綱領與行動計畫、法規制定與修正、機構整併，最後提出如何落實資源治理來調適氣候變遷。

關鍵字

非都市土地 ； 氣候變遷 ； 資源治理 ； 調適

並列摘要

There are some problems in non-urban planned area of Taiwan, for example, there are no plans to guide land use activity. There are many applications for land use change and government haven’t efficiently to controlled the illegal use of land. Climate change has become more and more serious in recent years and it makes non-urban planned area more and more sensitive and vulnerable. The rainfall of extreme weather events could be 2000~3000mm in two or three days and then bring about floods, mudflows and landslides. How do we adapt to the impact of climate change in the non-urban planned area? According to literature, resource management problems in the past and the concomitant increase of extreme weather events has exposed the inability of current regimes to deal with present and future challenges. They defend that the resource management has to change to resource governance- not only the management of top down, but also the negotiation of horizontal and vertical network. The resource governance should include the government, the public and the NGO organization.
The case study area is Kao-Ping River Basin was the most worst effected area of Morakot typhoon in 2009. This study generalizes the problems and positions of non-urban planned area by overlapping maps of zoning, landslides area, controlled area of government organizations, etc. in geographical information system. To understand the problems of planned and controlled network of resource governance and how to adapt the impact of climate change in non-urban planned area by interviewing government, public and NGO organizations. The result of this study shows that there are no resource governance in non-urban planned area of Taiwan because they don’t have the same goal and discussion, the public seldom participates in public affairs, the NGO organizations have no power in making policy and the governments do not negotiate well with each other. In the end, there are three ways to adapt the climate change: make plans of central government, make laws and intergrade organizations. In the end, this study is illustrates how the government could adapt to climate change by achieving resource governance.

並列關鍵字

non-urban planned area ； climate change ； resource governance ； adaptation

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