「霧臺鄉自然人文生態景觀區」資源共管之權益關係人經營意向探討

傳統排除式管理導向常造成管理者與當地權益者之間的衝突，使得共管逐漸成為國際上資源管理政策趨勢。臺灣共管已發展至「決策協商」階段，但尚未有法律層級之共管模式。霧臺鄉自然人文生態景觀區依《發展觀光條例》及《原住民族基本法》原則成立，並以政府部門與當地部落共同制定共管模式實行，成為全國原住民地區劃設首例。本研究針對參與景觀區劃設之重要權益關係人進行半結構式訪談，製作逐字稿，並以內容分析法進行訪談資料分析，再藉由焦點團體法獲得執行方案的共識。訪談大綱分為人員招募、課程培訓、組織建立、規範建立、景觀區中其他具可行性項目、景觀區面臨問題、景觀區與傳統領域議題共7大類項，共完成16人次訪談。研究結果顯示自然人文生態景觀區解說員不應限制在地設籍、學歷、原住民身分、族語熟稔度，但在地居民、族語流利具優先權；身心狀況應檢附健檢表證明；人員招募多管道招募；課程培訓加入學術團隊規劃課程，實習比例需佔3/1並搭配監測；辦理層級以「鄉」為範圍「村」自主經營；授課教師、時間、地點尊重辦理團隊規劃；提出同質研習證明者最高可抵20小時；考核規範須達66小時之80%出席率外加2次實習，並提高演示比例減少筆試；展延規範須達監測80%、會議70%、回流課程70%出席率；資訊推廣平台多管道行銷；各部落需有各自窗口，公所須有整合性單一窗口並配合部落總量管制；申請計畫或部落提經費聘用窗口辦理業務；工作會議及遊客成團人數與津貼核發，正式運作後彈性規劃；共同開會決定導覽員排班順序；接駁與住宿尚無能量可執行，僅能提供餐飲；旅遊服務站各部落需各自設立，鄉公所需設立全鄉整合性服務站；非旅遊目的人員仍須通報窗口，並由族人造冊核對身分進入；遊客規範依生態旅遊白皮書為原則，後續得依需求增訂；解說導覽人員規範、獎懲機制依法規為基礎並依需求增訂；其他可行性項目為生態旅遊、林下經濟、自然資源監測。另外，須建立資源共管委員會協商經營事務；原鄉居住限制問題、傳統領域爭議需進一步協商。霧臺鄉公所同意授權阿禮部落自主辦理導覽解說人員培訓及資源監測。

關鍵字

自然人文生態景觀區；權益關係人；質性研究法；共管

並列摘要

The traditional exclusive management orientation often leads to the conflicts between the managers and local stakeholders; therefore, co-management has gradually become an international trend of resource management policy. Co-management in Taiwan has already developed to the stage of "decision-making consultation", but there is no co-management model of legal level yet. The Wutai Township Natural and Cultural Ecology Scenic Area was established in accordance with the principles of the《Act for the Development of Tourism》and the《Indigenous Peoples Basic Law》, and was implemented by the co-management model jointly developed by the government departments and the local indigenous communities, becoming the first example of the establishment of the indigenous peoples region in Taiwan. This study conducts the semi-structured interviews with the important stakeholders involved in the establishment of the landscape area, produces the transcripts, and analyzes the interview data by content analysis, and then obtains the consensus of the implementation plan by the focus group methodology. The interview syllabus is divided into 7 major categories of personnel recruitment, courses training, organization establishment, norms establishment, other feasible items in the landscape area, problems faced by the landscape area and issues of the landscape area and traditional territories. A total of 16 person-time interviews are completed. The results of the study show that the interpreters of Natural and Cultural Ecology Scenic Area should not be restricted to local household register establishment, educational background, indigenous status, and familiarity with ethnic languages, but local residents and fluency in ethnic languages have priority. A health examination record should be attached to prove the physical and mental conditions. Personnel are recruited through the multiple channels. The academic team planning courses are added to the course training. The proportion of the internships needs to account for one third and the internships need to be matched with monitoring. The handling level takes the "township" as the scope and the "village" conducts independent management. The handling team planning is respected with regard to lecture teachers, time, and location. The maximum of 20 hours can be substituted for those who submit the certificate of homogenous study. 80% attendance rate of 66 hours plus 2 internships must be achieved for the assessment norms, and the presentation ratio is increased to reduce the written tests. The attendance rate of 80% for monitoring, 70% for meeting, and 70% for recurrent courses must be achieved for the extension norms. The multi-channel marketing is conducted on information promotion platforms. Each indigenous community must have its own window, and the Office must have an integrated single window and cooperate with the control on the total amount of the indigenous communities. A window is hired to handle the business about the application for a plan or the funding submitted by the indigenous community. The work meetings, number of visitor groups and allowance approval and issuance are planned flexibly after formal operation. The meeting is jointly held to determine the scheduling order of the tour guides. Energy is lacking to perform the shuttle service and accommodation; only catering can be provided. Each indigenous community needs to set up the Visitor Center separately; Township Office needs to set up the township-wide integrated service center. People of non-tourism purposes are still required to inform the window, and the clansmen make a list to check the identity for them to enter. The visitor norms should conform to the principle of Ecotourism White Book that may be updated based on the follow-up needs. The norms of the interpretive tour guides as well as the mechanisms of rewards and penalties are based on the laws and regulations which are updated according to demand. Other feasible items are ecotourism, under-forest economy, and natural resource monitoring. In addition, a resource co-management committee must be established to negotiate the management affairs. The issue of restrictions on the native land residence and the disputes in the traditional territories require further consultation. The Wutai Township Office agreed to authorize the Adiri indigenous community to independently conduct training on interpretive tour guides and resource monitoring.