宜蘭縣農舍管制：多元利害關係人網絡互動與分析

Farmhouse Construction Regulation in Yilan County: Multi-stakeholder Network Interaction and Analysis

沈嘉玲(Chia-Ling Shen) ； 戴興盛(Hsing-Sheng Tai)

《東台灣研究》 28期 (2021/02) Pp. 3-36

https://doi.org/10.6275/JETS.202102_(28).0001

摘要

近年來，宜蘭平原地區因多元、複雜因子之相互作用，使農舍大量興起，農地資源面臨流失與破碎化危機。此結果觸發受農舍影響之友善新農，及受「宜蘭經驗」和「宜蘭價值」認同影響之地方文官與社群網絡等，發展連結與自我組織，促使農舍管制規則加嚴，一定程度減緩農地劣化。但上述行動結果，引發不同的利害關係人透過自我組織與社會網絡動員，再次使地方管制鬆綁，導致地方治理衝突與農舍管制規則頻繁變動。本案例分析發現，良好的治理經驗與永續價值基礎，有助社會系統於危機時快速的自我組織，發展保護資源行動；同時因牽涉不同的利益與價值，也引發多元利害關係人的角力，導致治理衝突與政策變遷，都增加治理難度。故建議環境治理者應關注治理過程的非預期性，及政策制度的變動特性，據以建立新治理思維，以使治理系統能在非預期與多變的治理環境下，維持永續的治理措施與功能。本案例中的治理衝突，地方社群與地方政府都曾具正面影響上層治理系統之能力，促使發展新的規則減緩對農地資源的衝擊；反之，中央層級治理系統亦對宜蘭農地管制發揮正面影響，在不同時期相互緩衝與補位，顯示多層級治理有助提升治理系統面對變遷之調適能力。

關鍵字

環境治理 ； 利害關係人 ； 社會過程 ； 多層級治理 ； 農舍 ； 宜蘭

並列摘要

In recent years, the number of newly built farmhouses surged in Lanyang Plain due to interactions between multiple and complex factors. In turn, the surge led to the fragmentation and loss of farmland. Calls to make farmhouse construction regulations stricter ensued: new farmers who support environmentally friendly agriculture but were adversely affected by the farmhouse surge entered into self-organized collective actions with government officials and local community networks that emphasized the ＂Yilan Experience＂ and ＂Yilan Values.＂ The collaborative action slowed down farmland deterioration to a certain degree. In response, however, various stakeholders also resorted to self-organization and mobilization of social networks to loosen regulations, resulting in policy change continuously in a short time, and governance conflicts. This case study found that positive governance experiences and sustainability-friendly values contribute to that social system self-organization to protect the environment during crises, governance conflicts from competing interests and values are also prevalent, for they emanate from environmental governance and increase governance difficulties. So environmental governance participants should focus on the unpredictability of governance results, policy and regulation instabilities, and the need for governance actors to establish new governance mindset that underpins a system of governance that could navigate protean governance landscapes while maintaining sustainable governance measures and functions. This study also found that facing governance conflict both local communities and local governments have influenced or developed policies to slow the impact of central policy, and have the capacity to influence upper governance systems positively；instead, the central governance systems also exercise a positive influence on Yilan farmlands regulation. All levels of institutions served as mutual buffers and played complementary roles during different periods, indicating that multi-level governance buttresses governance systems' adaptational capacity to confront change.

並列關鍵字

Environmental governance ； Stakeholders ； Social process ； Multi-level governance ； Farmhouse ； Yilan

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