社区培力与资源保育：我国社区林业政策评析

Community Empowerment and Resource Conservation: Reviewing the Community Forestry Policy in Taiwan

本研究透过文献回顾、内容分析、参与观察与质性访谈，分析台湾社区林业的运作机制与初步的结果，探究其计画本质，并讨论其挑战与机会。台湾自2002年开始执行社区林业计画，一方面追随国际趋势，同时因应1990年代以来国内民主深根的现实，一方面则爲改善与在地社区，特别是原住民族部落的关系。台湾的社区林业计画采三阶段设计的计画发展，以逐步与在地社区建立资源协同管理的夥伴关系。截至2008年底，林务局补助了超过千件的第一阶段社区林业计画与九件第二阶段计画。结果显示，自2005年下半年即由各林管处负责的第一阶段计画推行顺利，林务局自己掌控的第二阶段计画却有一半以上停滞或中断。整体而言，台湾林务单位透过社区林业，主动走入社区，提供经费与技术跟社区互动，提升了林务单位在社区基层的形象，但对森林经营管理与保育的实质贡献却十分有限。分析其推行机制与计画内容，社区林业可说是企图以在地生态旅游发展来促进与在地社区连结的政府计画。以国际社区林业及参与式发展的经验爲本，本研究发现台湾现行社区林业的几个问题：缺乏清楚的政策与合适的体制安排，以及在地培力和参与不足。林务单位仍奉爲圭臬的中央集权的森林科学管理典范，可能是社区林业计画的关键挑战之一。本研究建议台湾的社区林业计画应厘清在地社区参与的空间，进一步简化与去中心相关的行政过程，多元化体制排置，并与日常业务做更多的连结。

This study explores the nature of community forestry and provides a discussion of its development in Taiwan that was initiated in 2002 with a view to including a cooperative approach to forest resources management with local communities. By the end of 2008, the Forestry Bureau had sponsored more than 1,000 community forestry projects, which promoted the public image of the Bureau. However, it is argued that their contributions to forest management and conservation works are rather limited, due to the lack of clear policies, proper institutional arrangements, local empowerment and participation. It is also argued that the rigidly centralized forest management approach is the constraint of the program. This study suggests that to effect better cooperative forest resources management, the program has to consider more local community participation, to deregulate and simplify bureaucratic processes, to diversify institutional arrangements, and to be embedded in the Bureau's routine business.