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題名:因應氣候變遷調適之國土空間規劃制度分析
作者:郭翡玉
作者(外文):Fei-Yu Kuo
校院名稱:國立臺北大學
系所名稱:都市計劃研究所
指導教授:黃書禮
學位類別:博士
出版日期:2011
主題關鍵詞:氣候變遷空間規劃調適策略脆弱性國土復育條例水患治理特別條例climate changespatial planningclimate change adaptationvulnerabilitynational territory restoration lawflood management law
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氣候變遷是全球各國未來數十年面臨最重要的風險之一,空間規劃在邁向低氣候風險且低碳的未來社會扮演一個很關鍵的角色,因此空間規劃必須發展創新的思維與執行方法。晚近歐盟國家(尤其是英國和荷蘭)為因應氣候變遷衝擊,其空間規劃體系在政策和立法方面的經驗,提供吾人許多省思和借鏡。面對氣候變遷之調適,許多研究均指出:制度變革及調適能力之提升等非結構性之調適策略,相較於結構性(工程)的調適作為更為有效。行政部門或決策者已意識到,如何建構一個可降低脆弱性、可強化回復力及調適力之空間規劃機制,將是面對氣候變遷的永續國土空間規劃之重要課題;過去十多年,台灣行政當局因應日益嚴重的極端氣候災害風險,先後推出「國土復育條例」及「水患治理特別條例」兩個重要法案,此二法案分別屬於非結構性及結構性(工程)調適政策作為。本論文運用Kingdon (2003)研究政策動態歷程的分析架構,以「國土復育條例」及「水患治理特別條例」為個案,分析其法制化歷程背後的政治權力運作及經濟損益分配,解釋為甚麼以特別預算投入工程建設為主軸之結構性的調適作為「水患治理特別條例」,能夠迅即且加碼通過,反而非結構性的土地使用調整和管理卻是始終無法過關。本研究結論和啟示是,今後因應氣候變遷調適的空間規劃技術創新和治理制度變革,循序漸進比全盤理性的制度改革較容易推行,但是特定時空的極端氣候災害的發生將會是打開政策之門的臨門一腳。
關鍵詞:氣候變遷、空間規劃、調適策略、脆弱性、國土復育條例、水患治理特別條例
Climate change is highly likely to have strong impacts on us all in the near future. Many studies have pointed out that when we try to adapt to climate change, such non-structural strategies as institutional reform and capacity building are more effective than structural (engineering) strategies. Spatial planning as a kind of non-structural strategies has a vital role to play in the move to a low carbon and low climate-change-risk society. Governments realize that spatial planning can not only reduce vulnerability, but also strengthen resilience and adaptation to climate change. In the past decade, two important laws, the National Territory Restoration Law and the Flood Management Law have been launched by Taiwan administration as its responses to several extreme climate events. The former one is non-structural in nature, while the latter one is structural.
This thesis applies Kingdon’s (2003) conceptual framework of policy analysis to study these two cases. This analysis compares the distribution of benefits, costs and political interests, and the operation of political powers behind their legislative processes. It successfully explains the reason why the Flood Management Law, which authorizes a special budget to construct many flood control structures, is easily passed, and the National Territory Restoration Law, which mainly specifies land use management and control measures, is still waiting for attention in the Legislative Yuan. This case study tell us that gradual adjustment of the spatial planning system is easier than its comprehensive reform to be adopted and implemented in order to innovate the planning system and spatial governance for climate change adaptation in the future. We should not miss the rare windows of opportunity provided by extreme climate events though.
Keyword: climate change, spatial planning, climate change adaptation , vulnerability, national territory restoration law, flood management law
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內政部營建署市鄉規劃局(2005)。國土保育地區防災空間規劃策略之整合型規劃(第一期)。2005年8月13日,取自行政院營建署,城鄉發展政府公開資訊網址:http://tpweb.cpami.gov.tw/all%20files/P_7_5/7-3-3-01.pdf
內政部營建署市鄉規劃局(2005)。國土計畫法施行細則與相關子法之制訂。2005年8月13日,取自行政院營建署,城鄉發展政府公開資訊網址:http://www.cpami.gov.tw/chinese/index.php?option=com_content&view=article&id=7586&Itemid=104
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交通部中央氣象局歷年颱風資料庫,http://www.cwb.gov.tw/。
行政院農委會水保局網站:2009年6月17日,行政院農委會水保局網址: http://www.swcb.gov.tw/class.asp?autoid=389
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行政院農業委員會林務局(2005)。台灣現有保護區之分類檢討與管理現況分析。2005年12月20日,取自行政院農委會,行政院農委會林務局網址:http://www.forest.gov.tw/fp.asp?xItem=21556&ctNode=124&mp=1
行政院農業委員會林務局(2005)。全球化與民主化變遷中的新世紀森林治理。2005年12月20日,取自行政院農委會,行政院農委會林務局網址:http://www.forest.gov.tw/content.asp?CuItem=21521
行政院農業委員會農業統計年報,http://www.coa.gov.tw/。
李永展(2004)。中橫暫不復建的下一步?。2004年8月18日,取自環境資訊中心,環境資訊中心網址:http://e-info.org.tw/node/2581
李永展(2005)。落實國土復育方案的幾點提醒。2005年6月1日,取自環境資訊中心,環境資訊中心網址:http://e-info.org.tw/node/1688
李淳一(2004)。「國土規劃建設立法政策探討」座談會紀錄。立法院法制局會議紀錄。2004年10月18日,取自立法院全球資訊網,法制研究成果網址:http://www.ly.gov.tw/05_orglaw/search/lawView.action?no=3485
李淳一(2005)。「國土復育條例草案評估報告」座談會紀錄。立法院法制局會議紀錄,編號第46號。2005年9月18日,取自立法院全球資訊網,法制研究成果網址:http://www.ly.gov.tw/05_orglaw/search/lawView.action?no=3485
林子倫(2005)。後京都時代的城市角色:全球化與在地化之關鍵節點。2011年6月5日,取自環境資訊中心,環境資訊中心網址http://e-info.org.tw/node/3416
林裕彬、吳振發(2006)。國土復育與土地資源。2006年5月22日,取自環境資訊中心,環境資訊中心網址:http://e-info.org.tw/node/8125
胡思聰(2004)。經建會版《國土復育條例》草案的疑慮。2004年12月27日,取自財團法人國家政治基金會,國政評論網址:http://old.npf.org.tw/PUBLICATION/SD/093/SD-C-093-040.htm。
范欽慧(2006)。失去的海岸線。2006年7月31日,取自環境資訊中心,環境資訊中心網址:http://e-info.org.tw/node/12243
財團法人國家政策研究基金會(2005)。「國土復育條例暨環境信託」立法座談會座談會實錄。2005年3月4日,取自財團法人國家經濟會,國家經濟會網址:old.npf.org.tw/.../國土復育條例立法座談會會議實錄/國土復育條例立法座談會會議實錄.doc
國家災害防救科技中心(2009)。莫拉克颱風災情普查成果報告。2011年6月5日,取自國家實驗研究院,資訊公開網址http://88flood.www.gov.tw/files/committee_plan0/128.pdf
陸國先、方偉達、沈立(2002)。台灣環境復育之新方向。2002年7月30日,取自財團法人國家政治基金會,國政評論網址:http://old.npf.org.tw/PUBLICATION/SD/091/SD-R-091-014.htm
游千慧、劉厚連(2006)。「國土復育條例草案」評估報告。立法院法制局法案評估報告,編號第472號。2006年7月20日,取自立法院全球資訊網,法制研究成果網址:http://www.ly.gov.tw/05_orglaw/search/lawList.action;jsessionid=82A170853BB5CEF01B33308784B9583F.jvm1?id=2&d-5419-p=11new window
 
 
 
 
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