對應改變－嘉南平原的農田水利組織與輪流灌溉制度

Coping with changes-The Irrigation Organization and Rotation Irrigation Technology in Chianan Plain

張煜權(Yu-Chuan Chang) ； 甘俊二(C.E. Kan)

《農業工程學報》 68卷1期 (2022/03) Pp. 3-18

https://doi.org/10.29974/JTAE.202203_68(1).0001

摘要

本文藉由世界各國農田水利事業的概況、嘉南平原的農田水利組織發展及輪流灌溉制度的形成，回顧農田水利組織如何回應自然與社經環境的變遷，藉此找出臺灣農田水利事業成功的關鍵因素與未來永續發展的方向。研究結果顯示，嘉南平原初期的農田水利組織型態，由於規模不大，比較類似灌溉合作社的純粹農民組織。日治時期則逐漸轉換成公共灌溉方案及灌溉整備計畫並行。直至水利組合實施之後，嘉南農田水利事業開始確立以地方自治為主體的農田水利會型態。1990年代以後，極端氣候變成常態，不同標的間的用水競爭日益激烈，2020年，為能持續擴大對農民的服務，並強化農業水資源的有效利用，乃將原有的農田水利會改制為公務機關，保留農區以下由地方自治的水利小組，類似目前亞洲常見的混合管控灌溉方案，尋求公部門與私部門的共同合作，發展公私協力的新方向，未來可參考日本土地改良區的發展經驗，透過健全組織與教育訓練等方式，強化水利小組的自治能力。在灌溉制度方面，各時期的灌溉制度均與當時農田水利事業的型態、水利秩序的形成與社會優勢團體彼此的合作關係息息相關。而現有輪流灌溉制度則是累積歷年來各地對應乾旱缺水對應的成功經驗。唯近年來，自然與社經環境改變，現有輪流灌溉制度仍需要考慮與農業以外的產業相互結合，不應只局限於單純的作物制度與水源狀況，還須考慮農村勞動力、土地及環境等錯綜複雜的關係。以往農田水利組織視為公法人，主要在於組織必須同具備管理眾人之事的立場與調適環境改變的能力，而「做出改變」是嘉南平原長期以來面對自然與社經環境變化的成功關鍵。面對未來極端化氣候的常態，如何將有限的水資源發揮最大的灌溉效益將是一大挑戰。期待嘉南農田水利組織改制為公務機關之後，能將先進的科技技術應用在傳統以人力發展出來的輪流灌溉技術，並發展足以反映田間實況的智慧型用水管理，藉此提升灌溉效率，並減少乾旱時期停灌休耕的情形，避免將缺水風險由其他用水標的轉移到農業。

關鍵字

極端氣候 ； 公私協力 ； 永續農業

並列摘要

Based on the patterns of irrigation organizations worldwide, as well as the development of rotational irrigation technology in the Chianan Plain, this research reviews how the framework of irrigation organization copes with changes of the natural and social-economic environments, and elicit the success factors and prospections of sustainable irrigation water management in Taiwan. The results show that, in the early development of the Chianan Plain agriculture, the pattern of irrigation organization was regarded as an irrigation cooperative due to its small scale. During Japanese colonial period, public irrigation schemes and irrigation settlement projects were applied concurrently. The implement of irrigation group system was one of the important policies, and this concept of self-governance has become the main essence of irrigation organization in Taiwan. After the 1990s, extreme weather has become the norm, and water competition between sectors increased dramatically. In 2020, for the purpose of expanding irrigation services and enhance irrigation efficiency, the irrigation association is incorporated as a government agency. However, irrigation group is still regarded as a local self-government group, which is similar to the irrigation schemes of mixed control commonly seen in Asia countries. Through the cooperation of the public and private sectors, public-private participatory system is developed to seek for sustainable agriculture in the reforms of irrigation organization. Regarding the irrigation distribution technology, the methodology during each period is greatly dependent of the type of irrigation organization, the supervisor of water distribution on farm, and the cooperation between primary groups in rural area. Based on rich experience on facing water shortage, the existing irrigation distribution technology integrates different types of water sources and various irrigation requirement, and brings out as the world-renowned ＂rotation irrigation technology＂. However, due to the changes of the natural and social-economic environments, the existing irrigation distribution technology needs to take water demand from other water sectors into account. This highlights that the labor productivity, land, environment, and cost are also becoming the constraint factors in the planning of irrigation distribution system. The irrigation organization was regarded as a public juridical person mainly because the organization must have the capacity of managing public affairs and the ability to adapt to environmental changes. ＂Coping with changes＂ is the critical factor to successfully face the of the constantly evolving natural and social-economic environments in the Chianan plain. It is a challenge to effectively utilize limited water resources under extreme weather conditions in the future. Incorporating irrigation organization as a government agency is expected to improve the traditional human-based rotational irrigation by applying high-tech skills and developing intellectual water management on farm, which can enhance irrigation efficiency and avoid the deficit risk shift from other sectors to agriculture by the practice of irrigation curbs and fallow paddy field during water shortage.

並列關鍵字

Extreme climate ； Public-private collaboration ； Sustainable agriculture

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