Evaluating Management Effectiveness of the Coastal and Estuarine Protected Areas in Taiwan

本研究應用世界自然基金會的保護區經營管理快速評估與設定優先法 (WWF RAPPAM Methodology)，綜整個別與系統的取徑，配合參與式工作坊、文獻回顧、參與觀察與訪談，評估台灣現有除國家公園外的11個海岸河口溼地型保護區、總計13個個案的經營管理效能，以及所面臨的壓力與威脅，探究台灣整理海岸河口型溼地保護區面臨的問題與挑戰，提供我國未來海岸河口溼地型保護區及溼地保育的參考。 評估結果顯示，海岸河口溼地型保護區普遍面臨漁撈及收穫水殖產品、遊憩活動、入侵種、家庭污水和都市廢水、垃圾和固體廢物衝擊等威脅。其中，污染是最普遍的問題。大部分的威脅來自於保護區外，管理單位難以因應。13個個案中的7個，其經營管理效能有類似的趨勢：經營管理目標清楚、溝通與資訊良好、基礎設施表現佳，但位置的設計與規劃不佳、人力資源與財務不足、經營管理計畫不完全及監測、研究與評估較弱，其他持平。系統層級的評估顯示台灣海岸河口溼地型保護區系統的設計、政策及其政策環境為整體的弱勢。曾文溪口北岸黑面琵鷺保護區、高美野生動物保護區為最需要列為保育優先的兩座保護區。系統評估過程中發現，要做好系統評估需要豐富的基礎資料、清楚的範疇、依保育目標先行分類、及確保參與者的多元性。 由經營管理效能評估結果，本研究建議未來海岸溼地保育應：1. 建立基線資料以及定期的資源調查與監測，且訂定最小資料集、2. 建構公開資訊流通平台、3. 應以區域整體性為考量，串連各類型的保護區、4. 訂立溼地保育相關專法、5. 制定與執行權責相稱的溼地保育計畫、6. 導入在地參與機制並整合在地力量以及、7. 重視相關人員的培訓。This study adopted the Rapid Assessment and Prioritization of Protected Area Management (RAPPAM) methodology of the WWF, accompanied by participatory workshop, literature review, participant observation and interview to evaluate the pressures and threats, management effectiveness of eleven coastal and estuarine protected areas in Taiwan. As to discuss coastal and estuarine protected areas'' issues, challenges, and for future conservation, this study implemented respectively evaluation at both site-level and the system-level. The results showed that the coastal and estuary wetland protected areas generally encountered pressures and threats of fishing and harvesting aquatic resources, recreational activities, invasive non-native/alien species, household sewage and urban waste water, garbage and solid waste. While pollution was one of the most popular pressures and threats among them, it revealed that most of them came from outside of protected areas which were difficult to handle by the management authorities. 7 of 13 cases that have implemented site-level evaluation have a similar pattern on their management: clear objectives, good communications and information delivery, sufficient infrastructure, improper site design and planning, lacking human resources and financial supports, incomplete management planning and weak monitoring, research and evaluation. The results of system-level evaluation revealed that our coastal and estuarine protected areas faced poor policy environment, inappropriate protected area system-level design, and inadequate protected area policies. This research identified that the government should put the Zengwun Rivermouth Black-faced Spoonbill Refuge and Gaomei Wetlands Wildlife Refuge as highest two for priorities on conservation. Regarding to system-level evaluation, this study found out that good baseline information, clear scope, proper classification by objectives and diversified participants were crucial for a good practice. Based on the results, this study revealed some points necessary for future coastal wetland conservation in Taiwan: 1. To build up baseline information, implement regular monitoring and routine survey, and to set up a minimum data set, 2. To establish an open platform for information exchange, 3. To link different types of protected areas by a regional approach, 4. To establish a special law for wetland conservation, 5. To development and implement wetland conservation projects of accountability, 6. To introduce local participation, and 7. To pay attentions to capacity building of staff