提昇農民平地造林所得之研究

A Study on Enhancing Income for Farmers Participating in the Afforestation in the Plain Area Program

吳妮蓁(Ni-Chen Wu)

指導教授 ： 林國慶

國立臺灣大學/生物資源暨農學院/農業經濟學研究所/碩士(2009年)

https://doi.org/10.6342/NTU.2009.00357

摘要

平地景觀造林政策自2002年1月1日起開始執行，計畫執行6年，預計完成25,100公頃之新植造林。自2002年至2007年底為止共完成造林8,919.18公頃，執行率為35.53%。造成私有農地造林不易推動之主要原因是為農民一旦參與造林，則該土地之財產權在造林之20年期間將會受到平地造林規範之限制，導致許多原先在農牧用地規範下的權利及可以提昇所得的機會將受到影響與限制，進而影響到農民參與平地造林的意願。因此，本研究的目的為探討提昇農民平地造林所得的可能方案，並以實證分析造林戶對於各項方案是否可以提昇所得的認知，以及這些認知對於該方案的支持度之影響。本研究首先對目前的平地造林規範進行財產權分析，並且針對造林戶之林地及地上物，研擬九種可能提昇農民所得之經營管理方案。本研究進一步引用林國慶（2008）對造林戶、專家學者、地方政府機關、及中央政府機關等四類與平地造林相關之受訪者進行問卷調查，以瞭解這四類受訪者對於現行平地造林規範的認知及看法。接著，本研究以實證分析造林戶對於九種經營管理方案是否能提昇所得認知對於支持度的影響。根據實證結果，本研究以受訪者對於九項方案之支持度高且歧異度低為推薦原則，高度推薦的二項方案為「建立碳排放企業認養機制」、「允許利用或出售森林副產物」；推薦的二項方案為「允許林農疏伐並出售疏伐木」及「在林地上發展休閒農業或生態休閒農業」。有所保留意見的方案為「允許林農將超過法定樹木之林木移栽出售」及「在林木下種植耐蔭植物」等二項，不予推薦的方案為「允許在林地上養雞鴨」、「允許在造林期間將景觀植物整株移栽出售」及「允許在林地上興建小木屋或農舍」等三項。本研究之實證分析主要目的為討論造林戶對於提昇農民平地造林是否能提昇所得之認知對於該方案支持度之影響。實證結果顯示，造林戶對於提昇農民平地造林所得之九種經營管理方案能提昇所得認知對支持度具正向顯著影響。本研究建議，對於參與平地造林之林地及地上林木之財產權規範，應加以明確界定，以利資源之有效利用，並且提昇農民所得，更能進一步保障森林之正外部性。針對本研究高度推薦及推薦的經營管理方案，政府應積極建立明確之規範，使造林戶可以使用其資源並增加可以提昇所得之機會。針對本研究不予推薦的經營管理方案，政府應建立明確之規範，以利於訂定明確之檢測標準，以使森林能有效發揮其正的外部性。針對本研究採保留意見之經營管理方案，政府則應評估其鬆綁後之效率與公平性，以及鬆綁後之執行成本，並進一步建立明確之規範，使造林戶能有效使用其資源，並增加其提昇所得之機會，以及確保平地造林之政策目標。對於財產權之明確規範與鬆綁應以不違反平地造林政策之目標，且不損害平地造林所提供之外部效益為原則。

關鍵字

平地造林 ； 農民所得 ； 農業環境 ； Probit 模型 ； Ordered Probit模型 ； 二階段工具變數法

並列摘要

Afforestation in the plain area program has been implemented for 6 years since 2002. From 2002 to 2007, the total area of new afforestation is 8,919.18 ha, that is only 35.53% of the original goal of 25,100 ha. The main difficulty of promoting private afforestation is the constrained land property rights imposed by the regulations for the period of 20 years after farmers enrolled in the afforestation program, which might reduce farmers’ opportunities to increase income. The purpose of this study is to recommend possible ways of forest and forest land managements in order to enhance the income opportunities for farmers participating in the afforestation program. This study also analyzes the cognitions of farmers in different management measures in enhancing income which might affect their supports of recommended management measures. A survey data by Lin (2008) was employed in this study. Farmers participating in the afforestation program in Hualien County, Pingtung County, and Tainan County, the related experts and scholars, county and city government officials, Forestry Bureau and the Forest Management Office officials were interviewed in this survey. The criteria used in the recommendation of those management measures considered are two folds. One is the high degree of supports and the other is the low degree of differences in the degree of supports among four groups of people surveyed. Based on these two criteria, two management measures are highly recommended, which include “establishing enterprise adoption mechanism of carbon emission” and “allowing farmers to use or sell special forest products”. Two management measures are recommended, which include “allowing farmers to thin and sell thinned logs” and “allowing farmers to develop leisure agriculture or biological leisure agriculture”. Two management measures are recommended with reservations, which include “allowing farmers to remove those trees which are more than legally required” and “allowing farmers to plant the shade-tolerant kinds of plaints”. And lastly three management measures are not recommended, which include “allowing farmers to raise chickens and ducks on the forest land”, “allowing farmers to remove and sell landscape plants in the period of afforestation”, and “allowing farmers to construct log cabin or farmhouse on the forest land”. The empirical resuls show that the cognitions of recommended management measures in enhancing farmers’ income have positive effects on the attitude of farmers in supporting the recommended management measures. The regulations of afforestation program on both the forest land and the objects on the land should be well-defined for the efficient use of resources. The government should set the priority to introduce highly recommended and recommended management measures and whereby modify the regulations which are deemed necessary in order to increase the opportunities of enhancing income by farmers. The regulation modification should be based on the principle of sustaining the positive externality provided by the forest land and complied with the original objectives of the policy.

並列關鍵字

Afforestation in the Plain Area Program ； Farm Income ； Agricultural Environment ； Probit Model ； Ordered Probit Model ； Two-Stage Instrumental Variable Estimation

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