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我國國家公園法及經營管理缺失之探討 以太魯閣國家公園管理處處理原住民事務歷程為例
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| 作者 |
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葉美慧 |
| 學校系所 |
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國立東華大學觀光暨遊憩管理研究所 |
| 地點 |
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全臺 全部
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| 研究內容 |
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[ 摘要 ]
太魯閣國家公園管理處（以下簡稱太管處）於2002年成立固定成員之原住民諮詢委員會，其目的在於建立國家公園與原住民間穩定之「溝通平台」，希望藉此改善雙方長期以來的互動關係。此舉在無法源依據之下受到營建署默認，並下達公文要求各國家公園管理處於限期內成立「國家公園住民諮詢委員會」，但隨著管理處最高管理者的替換，太管處方面對「溝通平臺」延續與否之決策便開始有了轉變。國家公園法是國家公園執行經營管理之依據，許多專家學者均已提出國家公園法不足並建議修改之，若此法確屬不適或不足，而國家公園管理機構還據其行事，其經營管理的效能則無法提升。
本研究以文獻分析與深度訪談等方法，進行太魯閣國家公園管理處各階段「溝通平台」起落歷程之探討。文獻部分除了研究論文與期刊外，亦透過公文、會議記錄等資料分析管理者在原住民事務經營管理上之決策依據，並以訪談方式進一步蒐集資料以呈現實際狀況，從中分析國家公園法不足所引起的原住民事務經營管理問題。
研究結果顯示，在國家公園經營管理中，舉凡與原住民相關事務之處理原則或依據至今仍罕有具體的、法制的明文規定或指示，幾乎全淪為各管理處最高管理者行政權力之行使，也呈現「因人而異」的管理方式。而太管處與原住民間「溝通平臺」的建立與運作之變遷，說明了國家公園管理處在處理原住民相關事務上，因最高管理者的替換與其決策反覆而呈現行政管理上之「不連續」現象。
最後本研究建議，國家公園當局一方面應積極地朝修正國家公園法努力，促使「溝通平臺」合法化，並將原住民事務之經營管理制度化；另一方面可以美國國家公園政策的轉變歷程為借鏡，適度調整國家公園原住民政策，考量原住民族之權益與需求，將原住民事務與「民眾參與」之機制涵蓋進國家公園經營管理當中，以改善雙方互動關係、增進國家公園原住民事務經營管理之效能。
[ 英文摘要 ]
While not backed by national laws, Taroko National Park Headquarters set up an “Aboriginal Council Committee (ACC)” in 2002 to build a stable “communication platform” for both the Park and the local aborigines. Although the establishment of ACC seemed not to be in valid legal ground, “Construction and Planning Agency, Ministry of the Interior”, the competent authority of the Park, still agreed tacitly and requested every national park headquarters further to found a “Local People Council Committee”. However, with the transfer of Director, Taroko National Park Headquarters has begun to re-consider if the “communication platform” should continue or not.
National Park Law is the basis of national park management. In order to make the Law better and more ideal, many experts and scholars have raised a lot of suggestions to improve the insufficiency of the Law. If the Law is really improper or insufficient, the effects of national park management will not be able to be raised.
This research discussed the process of the establishment of the communication platform, ACC, by reference collection and analysis and in-depth interviews. References including the related theses, journal articles, official documents, meeting records, etc. were for the researcher to analyze the decision process of the management on the aboriginal affairs. In addition, the researcher gathered related data further by in-depth interviews to present the real situation, and to analyze the management problems on the aboriginal affairs caused by the insufficiency of National Park Law.
The result shows that when it comes to the management principles or bases on the aboriginal affairs in the Park management, it is rare to find concrete and documented regulations or directions. It seems that the Director, the top manager of the Park, can fully exercise his/her right and power to handle the aboriginal affairs, so the management on aboriginal affairs may differ from each Director. The establishment and operation of ACC proves the above idea. Because of the substitution of the top manager, discontinuousness appears when the Headquarters deals with ACC, and other aboriginal affairs.
Finally, according to the data collection and analysis, the researcher raises the following suggestions. On one hand, the Park should actively work hard on the revision of National Park Law to legalize the “communication platform” and to systemize the management on the aboriginal affairs. On the other hand, the Park can learn from the transfer of American National Park management policies to moderately adjust the principles of aboriginal affairs. Moreover, the Park should take the local people’s rights and interests into consideration and involve the aboriginal affairs and public participation in the Park management to improve the interaction of both sides and to enhance the effects of the management on the aboriginal affairs.
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