原住民社區之公民參與研究--以清泉風景區計畫為例 - 政大學術集成

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(1)國立政治大學亞太研究英語碩士學位學程 International Master’s Program in Asia-Pacific Studies College of Social Sciences National Chengchi University. 碩士論文 Master’s Thesis. 立. 政治大. ‧ 國. 學. 原住民社區之公民參與研究—以清泉風景區計畫為例. ‧. Citizen Participation in the Indigenous Community:. n. al. er. io. sit. y. Nat. A Case Study on the Qingquan Scenic Area Project. Ch. engchi. i Un. v. Student: Ho, Hsiao-Yun Advisor: Hsiao, Naiyi. 中華民國九十九年七月 July 2010.

(2) 原住民社區之公民參與研究—以清泉風景區計畫為例 Citizen Participation in the Indigenous Community: A Case Study on the Qingquan Scenic Area Project. 研究生:何筱筠. Student: Ho, Hsiao-Yun. 指導教授:蕭乃沂 Advisor: Hsiao, Naiyi. 學. ‧ 國. 立. 政治大國立政治大學. 亞太研究英語碩士學位學程. ‧. 碩士論文. n. Ch. A Thesis. er. io. sit. y. Nat. al. i Un. v. i Submitted to International Master’s in Asia-Pacific Studies e n g c hProgram National Chengchi University In partial fulfillment of the Requirement For the degree of Master in China Studies. 中華民國九十九年七月 July 2010.

(3) Acknowledgement. Eight years after graduating from university, I was able to return to school and enter a Master’s program. For me, it was a valuable opportunity. Although I had to travel between Hsinchu and Taipei over the three-year period, I think it was worthwhile. Regarding completion of this master’s thesis, I would first like to thank my advisor, Professor Hsiao, who patiently guided me while I was writing the thesis. Secondly, I would like to thank my thesis oral exam committee members, Professor. 治政 I would also like to thank the teachers and 大 parents of the students at Taoshan 立. Kuan and Professor Tu, for providing me useful suggestions.. Elementary School, Hsinchu County. My paper was greatly fulfilled and enriched by. ‧ 國. 學. the interview information that they provided. In addition, I would also like to thank. ‧. my friends and classmates who gave me support and strength while I was in school.. sit. y. Nat. Finally, I want to dedicate this thesis to my dear husband and parents. With their. io. n. al. er. support, I was able to complete the master’s program smoothly.. Ch. engchi. i. i Un. v.

(4) Abstract On August 25, 2004, Taiwan was hit by Typhoon Aere which caused great damage in Taoshan Village Wufong Township in Hsinchu County. Later that year, in order to reconstruct Wufong Township and promote tourism, the Hsinchu County Government proposed the “Second Overall Review of the Qingquan Scenic Area Project”. The residents of Taoshan Village are aborigines. Many factors hinder aborigines from participating in the development of public policy, including incompleteness of information, weakness of mobilization, and cultural differences. This study is a case. 政治大. study of Taoshan Village, Wufong Township, and interviews local residents, resident. 立. representatives, and government officials. Through the case study, the thesis aims to. ‧ 國. 學. develop an understanding of the process of citizen participation of the indigenous people in Wufong Township during the Second Overall Review of the Qingquan. ‧. Scenic Area Project and to analyze the difficulties in implementing citizen. y. Nat. io. sit. participation during the process of urban planning.. n. al. er. The results of the research show that the citizen participation system outlined in. Ch. i Un. v. the existing urban planning regulations cannot be effectively implemented in the. engchi. indigenous regions. As a result, the residents have a very limited influence on decision-making. In addition, the study also finds that a lack of citizen participation in the early stages of urban planning led to some problems. Finally, based on the findings and results, this study provides suggestions on policy in hopes that citizen participation can be implemented effectively in indigenous regions.. Keywords: aborigines, citizen participation, urban planning. ii.

(5) TABLE OF CONTENTS Chapter 1 Introduction ...................................................................................................1 1.1 Research Background and Motivation.............................................................1 1.2 Research Purposes ...........................................................................................3 1.3 Research Procedure..........................................................................................3 Chapter 2 Literature Review..........................................................................................1 2.1 Citizen Participation.........................................................................................1 2.1.1 Definition of Citizen Participation........................................................1 2.1.2 Frameworks of Citizen Participation ....................................................1 2.1.3 Public Involvement in Plan-Making Processes.....................................5 2.1.4 Public Participation Techniques............................................................8 2.1.5 Citizen Participation during Urban Planning......................................10 2.2 The Indigenous Right of Participation and Indigenous Community Development ........................................................................................................13 2.2.1 The Indigenous Right of Participation ................................................13 2.2.2 Indigenous Community Development ................................................15 2.3 Empirical Studies in Taiwan ..........................................................................18 Chapter 3 Research Methods .......................................................................................20 3.1 Data Collection ..............................................................................................20 3.2 Document Analysis ........................................................................................21 3.3 Selection of Interviewees ...............................................................................22 3.4 Interview Process ...........................................................................................24 3.5 Interview Questions .......................................................................................25 3.5.1 Interview Questions for Government Officers....................................25 3.5.2 Interview Questions for Local Representatives ..................................27 3.5.3 Interview Questions for Residents ......................................................28 Chapter 4 Qingquan Scenic Area.................................................................................31 4.1 Introduction of Wufong Township .................................................................31 4.1.1 Population of Taoshan Village............................................................32 4.1.2 Education and Economic Structure.....................................................33 4.2 Introduction of the Qingquan Scenic Area Project ........................................34 4.2.1 Background of the Qingquan Scenic Area Project .............................34 4.2.2 The Contents of the Second Overall Review of the Qingquan Scenic Area Project .................................................................................................37 Chapter 5 The Process of Citizen Participation in the Qingquan Scenic Area ............41 5.1 The Turning Point --Typhoon Aere on August 25, 2004...............................41 5.2 Second Overall Review of the Qingquan Scenic Area Project ......................43. 立. 政治大. ‧. ‧ 國. 學. n. er. io. sit. y. Nat. al. Ch. engchi. iii. i Un. v.

(6) 5.2.1 Exhibition of Second Overall Review of the Qingquan Scenic Area Project ..........................................................................................................43 5.2.2 Citizen Participation during Second Overall Review of the Qingquan Scenic Area Project ......................................................................................46 5.3 Inauguration of the Chang Syue-Liang's Former Residence .........................51 5.4 After the Opening of Chang Syue-Liang's Former Residence.......................53 5.4.1 Vendors Protest Process ......................................................................54 5.4.2 The Vendors’ Protest from the Perspective of Citizen Participation...57 Chapter 6 Evaluation of the Qingquan Scenic Area Project ........................................62 6.1 A Lack of Citizen Participation in Urban Planning Led to the Problems ......62 6.2 The Direction of Improving the Qingquan Scenic Area Project ....................66 Chapter 7 Conclusions and Suggestions ......................................................................70 7.1 Summary ........................................................................................................70 7.2 Policy Implications ........................................................................................75 7.3 Research Limitations .....................................................................................77 7.4 Implications for Future Research...................................................................78 References....................................................................................................................79 Appendix......................................................................................................................85 Appendix 1 Interview Questions .........................................................................85 Appendix 2 Important Events of the Qingquan Scenic Area Project...................88 Appendix 3 Residents’ Opinions Table of the Second Overall Review of the Qingquan Scenic Area..........................................................................................89. 立. 政治大. ‧. ‧ 國. 學. n. er. io. sit. y. Nat. al. Ch. engchi. iv. i Un. v.

(7) LIST OF TABLES Table 2-1. Eight Rungs on a Ladder of Citizen Participation ........................................2 Table 2-2. Public Participation Continuum....................................................................4 Table 3-1. Interview Subjects ......................................................................................23 Table 3-2. The Interview Flow Chart...........................................................................24 Table 3-3. The Interview Questions Design of the First Stage ....................................26 Table 3-4. The Interview Questions Design of the Second Stage................................28 Table 3-5. The Interview Questions Design of the Third Stage ..................................29 Table 4-1.Taoshan Village Population Statistics..........................................................32 Table 4-2. Population Condition of Qingquan Scenic Area.........................................33 Table 4-3. Qingquan Scenic Area Project Schedule ....................................................36 Table 4-4. Important Events of the Second Overall Review of the Qingquan Scenic Area Project .............................................................36 Table 5-1. Number of Tourists Statistics of Qingquan Scenic Area ............................42 Table 5-2. The Present Citizen Participation Procedure of Urban Planning Act: Correspondence to Arnstein’s Ladder of Citizen Participation....................45. 立. 政治大. ‧. ‧ 國. 學. n. er. io. sit. y. Nat. al. Ch. engchi. v. i Un. v.

(8) LIST OF FIGURES Figure 1-1. Research Flow Chart ...................................................................................4 Figure 2-1. The Travis Model ........................................................................................5 Figure 2-2. The Roberts Model......................................................................................6 Figure 2-3. The McConnel Model .................................................................................7 Figure 2-4. The McDonald Model .................................................................................8 Figure 2-5. Urban Planning Flow Chart ......................................................................12 Figure 4-1. Location of Wufong Township in Hsinchu County ..................................31 Figure 4-2. Level of Education Comparison Sheet......................................................34 Figure 4-3. Mudslides in Taoshan Village after Typhoon Aere ...................................35 Figure 4-4. Landslides in Qingquan Scenic Area after Typhoon Aere ........................35 Figure 4-5. Three Aspects of Development of the Qingquan Scenic Area Project......37 Figure 4-6. The Qingquan Scenic Area Tourism Design .............................................38 Figure 4-7. The Chang Syue-Liang's Former Residence .............................................39 Figure 4-8. The House of San Mao..............................................................................40 Figure 4-9. Qingquan Bathing Pool .............................................................................40 Figure 5-1. Chang Syue-Liang's Former Residence Opening Day..............................54. 立. 政治大. ‧. ‧ 國. 學. n. er. io. sit. y. Nat. al. Ch. engchi. vi. i Un. v.

(9) Chapter 1 Introduction 1.1 Research Background and Motivation Sitting in the path of many typhoons over the Northwest Pacific, Taiwan suffers severe damage from typhoons almost every year. From 1961 to 2003, typhoons caused 3,240 deaths and 9,499 injuries, destroyed 95,000 houses, severely damaged 175,000 houses, and caused uncountable property damages in Taiwan. On August 25, 2004, Taiwan was hit by Typhoon Aere which caused great damage in Taoshan Village, Wufong Township, in Hsinchu County. On that night,. 政治大. many houses and farms were damaged. The heavy rains caused serious flooding and. 立. landslides. Flooding destroyed many bridges, and landslides cut off roads in the. ‧ 國. 學. mountains. Some residents of Taoshan Village lost their homes and families in the typhoon.. ‧. Wufong Township is situated on the western edge of Mount Xueshan in Hsinchu. y. Nat. io. sit. County, among undulating hills and ridges. The residents, mostly members of the. n. al. er. Atayal and Saisiat Tribes, make a living by planting temperate fruit and high-cold. Ch. i Un. v. vegetables. It is an important agricultural area. Another important source of income. engchi. for the local people is tourism. The Qingquan scenic area, located in Wufong Township, is famous for the vast forest, endless fresh springs, and bubbling brooks. According to statistics from the Hsinchu County Government, at the time of the typhoon, it was a popular scenic area attracting 300,000 visitors per year. After typhoon Aere, traffic in the mountainous areas of Wufong Township was disrupted. This caused a great loss because the tourism assets were put out of action or rendered inaccessible. As a result, the number of tourists decreased to only two thousand people per year. In order to reconstruct Wufong Township and promote tourism after the typhoon, 1.

(10) the Hsinchu County Government integrated resources from the central and local governments to implement a reconstruction project. The “Second Overall Review of the Qingquan Scenic Area Project”, an urban planning project, was proposed by the Hsinchu County Government in 2004, after the typhoon. A few years later, on December 12, 2008, Chang Syue-Liang's Former Residence was opened, and the number of tourists began to increase gradually. In March 2010, some tourists filed complaints about the vendors in the Qingquan Scenic Area, so the township head decided to remove these vendors. These vendors organized a committee and asked for the right of public participation.. 治政 Public participation has long been emphasized大 by scholars as an important aspect 立 of planning practice and policymaking. Participation helps planners and policymakers ‧ 國. 學. understand the preferences and local knowledge of the public, builds support for. ‧. policies, and may prevent expensive and time-consuming litigation against plans and. sit. y. Nat. policies (Innes & Booher, 2004). Since local residents are the main beneficiaries of. io. al. n. policy decision.. er. the policies, they should have the right to express their opinions and participate in the. “Participation may. iv n C be characterized U asymmetric h e n g c hbyi an. power relationship. between planners and those who decide to participate” (Arnstein, 1969). Most of the residents of Taoshan Village Wufong Township are Aborigines. In Taiwan, the Aborigines have lower social and economical positions than other Taiwanese. They are hindered from participating in the policy-making process by many factors, including incompleteness of information, weakness of mobilization, and cultural differences. Through a case study of Wufong Township from 2004 to 2010, the author of this thesis intends to identify how government policymakers have involved local residents in the policy-making process, and particularly how policymakers have provided these aborigines real opportunities to participate and have a voice in the 2.

(11) processes and outcomes. Furthermore, the author hopes this study can offer some direction for planners in the public sector implementing the policy-making processes in other aboriginal areas.. 1.2 Research Purposes First, this thesis aims to understand the process of public participation of the indigenous people in Wufong Township during the Second Overall Review of the Qingquan Scenic Area Project from 2004 to 2008. Second, the thesis, through exploring the communications between public. 政治大. officials of the local government and representatives of the local inhabitants, clarifies. 立. how they interacted when vendors protested against the dismantling of their. ‧ 國. 學. businesses .. Third, by collecting data, the author gathers the local inhabitants’ opinions and. ‧. evaluations of the process and outcomes of the Qingquan Scenic Area Project.. sit. y. Nat. io. n. al. er. 1.3 Research Procedure. i Un. v. First, the author will explain the motive of this research in Chapter One. That. Ch. engchi. explanation is followed by a literature review of relevant works on citizen participation in urban planning in Chapter Two. In Chapter Three, the collection of data through in-depth interviews is explained. For the case study, the “Second Overall Review of the Qingquan Scenic Area Project” is introduced in Chpater Four. The author analyzes the data and presents the results of the research in Chapter Five and Chapter Six. In the final chapter, Chapter Seven, the author concludes with a summary and discussion of directions for future research. The author also expresses hopes that this research can offer some suggestions for planners and policy-makers to enable public participation in the policy-making process.. 3.

(12) The research flow chart is as follows:. Research Background and Purposes. Research Contents and Method. Literature Review. Citizen Participation. 立. 政治 Empirical 大 Researches. The Indigenous Right of Participation. ‧. ‧ 國. 學. Research Design. Documents Analysis. Nat. Case Study. Second Overall Review of the Qingquan Scenic Area Project. n. al. Ch. engchi. er. io. sit. y. In-Depth Interviews. i Un. Data Analysis. Conclusion and Suggestion. Figure 1-1. Research Flow Chart Source: Author. 4. v.

(13) Chapter 2 Literature Review In this chapter, the relevant citizen participation theories are presented. First, the author introduces the definition and frameworks of citizen participation. Second, the types of public participation techniques are described. Third, the indigenous right of participation is explored. Lastly, some relevant domestic research is discussed.. 2.1 Citizen Participation Citizen participation offers a new way of thinking about development. It embodies the. 政治大 find the solutions to address them; that they can be active participants rather than 立 idea that citizens can help themselves; that they can articulate their own needs and. ‧ 國. 學. mere recipients of development processes; that development works better for them if done “bottom-up” rather than “top-down”.. Nat. sit. y. ‧. 2.1.1 Definition of Citizen Participation. io. er. The concept of citizen participation is rather broad. Various similar conceptions of the. al. n. term “citizen participation” are used. These can include terms such as “public participation”, “citizen. iv n C involvement”, involvement”, h e n g c“public hi U. and “community. participation.” For this study, “citizen participation” is defined as processes in which individuals, groups, and organizations have the opportunity to participate in making decisions that affect them, or in which they have an interest.. 2.1.2 Frameworks of Citizen Participation Scholars have developed a variety of typologies of citizen participation. Two important concepts of citizen participation are introduced as follows:. 1.

(14) . The ladder concept:. Arnstein (1969) defined citizen participation in terms of a ladder, with eight rungs corresponding to the degrees of power available to participants and representing three levels of involvement. She arranged in the ladder pattern illustrated in Table 2-1(John Abbott, 1996).. Table 2-1. Eight Rungs on a Ladder of Citizen Participation Type Citizen Control Delegated Power Partnership. 立. Degrees of Participation. High. 治 of citizen power 政 Degrees 大. ‧ 國. 學. Placation. Degrees of tokenism. ‧. Consultation Informing. sit. y. Nat. Non-participation. io. al. n. Manipulation. er. Therapy. Ch Source: Arnstein (1969). engchi. i Un. Low. v. Arnstein explains the ladder quite clearly: “The eight types are arranged in a ladder pattern with each rung corresponding to the extent of citizens' power in determining the end product. The bottom rungs of the ladder are (1) Manipulation and (2) Therapy. These two rungs describe levels of "non-participation" that have been contrived by some to substitute for genuine participation. Their real objective is not to enable people to participate in planning or conducting programs, but to enable powerholders to "educate" or "cure" the 2.

(15) participants. “Rungs 3 and 4 progress to levels of "tokenism" that allow the have-nots to hear and to have a voice: (3) Informing and (4) Consultation. When they are proffered by powerholders as the total extent of participation, citizens may indeed hear and be heard. But under these conditions they lack the power to insure that their views will be heeded by the powerful. When participation is restricted to these levels, there is no follow-through, no "muscle," hence no assurance of changing the status quo. “Rung (5) Placation is simply a higher level tokenism because the. 治政 ground rules allow have-nots to advise, but retain 大 for the powerholders the 立 continued right to decide. Further up the ladder are levels of citizen power ‧ 國. 學. with increasing degrees of decision-making clout. Citizens can enter into a. ‧. (6) Partnership that enables them to negotiate and engage in trade-offs with. sit. y. Nat. traditional power holders. At the topmost rungs, (7) Delegated Power and (8). io. al. n. seats, or full managerial power”(Arnstein, 1969).. . Ch. engchi. er. Citizen Control, have-not citizens obtain the majority of decision-making. i Un. v. The public participation continuum concept:. Public participation processes include information exchange, public consultation, engagement, shared decisions, and shared jurisdiction. These processes form a continuum based on the extent of involvement and role in decision making, from information exchange (least) to shared jurisdiction (most). The processes are not separated by definitive boundaries; they flow into and build upon one another.. 3.

(16) Table 2-2. Public Participation Continuum Information exchange info in info out. Engagement/ dialogue. Consultation I listen and speak, You listen/speak.. Shared decisions. We talk and understand each other.. We decide.. Shared jurisdiction We are responsible and accountable.. Increasing Collaboration Source: Bruce (2003) Each public participation category has its own main purpose, introduced below: 1. Information exchange:. 政治大. Creating awareness, education, exchange of views, encouraging responsible behaviors,. 立. and promotion of informed decision-making. ‧ 國. 學. 2. Public consultation:. of tradeoffs and priorities; and becoming better informed.. Nat. y. ‧. Two-way communication, getting stakeholder input, advice and feedback; discussion. er. io. sit. 3. Engagement/dialogue:. In-depth exploration of views, perceptions and interests, with emphasis on listening. n. al. Ch. i Un. v. and achieving mutual understanding; exploration of values; and in some situations, working toward consensus. engchi. 4. Shared decisions: Share responsibility, decentralize decision-making to the community level, achieve integration, resolve conflicts, allocate scarce resources, and manage programs in a manner that respects and reflects community values. 5. Shared jurisdictions: Recognize constitutional assignment of powers; recognize, respect and reflect community values in governance decisions; make difficult allocation choices in a decentralized political context (Bruce, 2003). 4.

(17) 2.1.3 Public Involvement in Plan-Making Processes It is very important for the public to be involved in the processes of plan-making. Four models selected from the literature on planning theory include opportunities for public involvement. 1. The Travis Model: The diagrammatic process (Figure 2-1) incorporates a continuing control mechanism, a ‘brain’ which activates and responds to the sequence of activities. “In the ‘brain’ are five interacting cells--public relations education, user research, private sector, applied. 政治大. theoretical research, and public participation; these are considered to continuously. 立. shape the direction of the plan process. In this model, the public is the leading role of. ‧ 國. 學. the whole planning” (Fagence, 1977).. ‧. n. er. io. sit. y. Nat. al. Ch. engchi. i Un. v. Figure 2-1. The Travis Model Source: Fagence (1977). 2. The Roberts Model: Robert separates the process activities into two participant ‘spaces’, one concerned with the activities of ‘the planners’, and the other with the activities of ‘the community’ (Figure 2-2). In the process, some activities are led by planners, such as 5.

(18) data analysis and setting of standards; some activities are led by the community, such as preference selection and revision of goals. “The activities of goal specification and refinement are located within the compass of both participant ‘space’, which means the activities are discussed by both parties” (Fagence, 1977). Roberts suggests that communication between parties in plan-making is a continuing activity.. 立. 政治大. ‧. ‧ 國. 學. n. er. io. sit. y. Nat. al. C Figure 2-2. The Roberts Model h Source: Fagence (1977). engchi. i Un. v. 3. The McConnel Model: There are three parallel and interconnected streams of activity in McConnell’s research (Figure 2-3), namely the survey, the formulation of the plan, and the political prescription. “He identifies participation opportunities as inputs to the determination of goals and objectives, as the expressions of public demand and political preference, and as the series of negotiations between planners, interested organizations, other authorities and levels of government. The structure of the process accommodates the 6.

(19) importance of the determination of plan and policy preferences by means of public and political resolution” (Fagence, 1977).. 立. 政治大. ‧. ‧ 國. 學. Figure 2-3. The McConnel Model Source: Fagence (1977). n. er. io. sit. y. Nat. al. 4. The McDonald Model:. Ch. engchi. i Un. v. The model concentrates on the potential opportunities for interest group participation and opportunities for actions. “Most processes are drawn from the view-point of the planners or the politicians. In this model, the elected representatives play important roles during the processes of plan-making. Through the interaction between the public, planners and elected representatives, it can achieve the goals of citizen participation” (Fagence, 1977).. 7.

(20) 學. ‧ 國. 立. 政治大. ‧. Figure 2-4. The McDonald Model Source: Fagence (1977). y. Nat. n. er. io. al. sit. 2.1.4 Public Participation Techniques. i Un. v. The following are simple descriptions of the types of techniques available: 1. Publications:. Ch. engchi. All consultations produce some type of published material, which may describe the process: define the problem, issue or situation; suggest options; or request direct feedback from readers on their views, interests or alternatives. 2. Public meeting: Sessions open to anyone with an interest in the subject of the consultation are publicized and held. Public meetings often begin with a technical overview of the situation and process, after which members of the public have opportunities to speak from the floor regarding their concerns or to ask questions of expert panelists. 8.

(21) 3. Open house: An open house usually communicates information about a project or proposal through a series of displays. Staff is present to answer questions and provide clarification. Visitors are asked to register their views before leaving.. Information handouts are. sometimes available. 4. Advisory committee/task force: Groups are selected to represent a cross-section of interests, and may be asked to prioritize, review, make recommendations, develop alternatives, evaluate, assist, etc. Advisory groups tend to be long-term, whereas a task force has a short time horizon. 5. Workshops:. 立. 政治大. Stakeholders are invited to attend a meeting to review information, define issues,. ‧ 國. 學. solve problems, or plan reviews. Generally, workshops are expected to educate. ‧. participants and solve a problem or develop a product such as an action plan. Most. sit. y. Nat. workshops use facilitation.. io. er. 6. Target briefings:. al. These are designed to reach specific audiences who may benefit from private and. n. iv n C presentations. for targeted h e nAudiences gchi U. individually tailored. briefings could include. ministers, municipal officials, media representatives, or specific interest groups. 7. Focus groups: Groups of eight or ten people are structured to represent a cross-section of the stakeholders affected by an issue. A moderator leads a discussion of the facts, exploring participants’ feelings, values, interests, concerns, etc. 8. Bilateral meetings: The sponsoring agency meets directly with stakeholder groups to receive feedback or discuss areas of interest. This can be useful if the issue under discussion is accompanied by a high level of conflict. 9.

(22) 9. Toll-free phone line: This provides an impersonal opportunity for the public to give feedback, provide ideas, or identify issues. The phone can be answered by a staff member who discusses the issue directly with the caller, or by a taped message and opportunity to record comments. 10. Interviews: Individual discussions with the public or representatives of interest groups may allow participants to cover a wider range of information than is solicited on a questionnaire, and thus perhaps to identify new issues or concerns not previously considered. 11. Surveys:. 立. 政治大. Surveys are used to collect information, solicit opinions, and build a profile of the. ‧ 國. 學. groups and individuals involved. They provide information to the public and help. ‧. focus public attention on specific issues.. sit. y. Nat. 12. Public hearings:. io. er. A public hearing is a forum at which stakeholders can make formal statements about. al. the issue at hand. Oral statements are often accompanied by written briefs. A panel. n. iv n C representing the sponsoring agency ask questions of the presenter. The panel h e nmay gchi U generally submits a final report with findings and recommendations.. 2.1.5 Citizen Participation during Urban Planning In Taiwan, urban planning is done with a “top-down” approach, and the specialists control all aspects of the plan. Urban planning comprises three steps (Figure 2-1): planning (before exhibition of a draft plan); deliberating (after the exhibition and before the announcement of a draft plan), and implementing (after the announcement). Citizen participation during the three steps is introduced as follows (Ke, 2004):. 10.

(23) 1. Planning (before the exhibition of a draft plan): The design of the urban planning project is decided by government departments. According to the “Regulations for the periodic overall review of Urban Planning”, the government departments should announce the draft plan, and for 30 days, members of the public can submit recommendations in written form. However, the recommendations from the public are just reference materials for the government departments. It is hard for the public to participate in the project directly. 2. Deliberating (after the exhibition and before the announcement of draft plan): During this step, the common way for the public to participate is to attend a public. 治政 meeting. Although the public has the chance to express 大 opinions in the public meeting, 立 attending such a meeting is still a passive way for the public to participate in the ‧ 國. 學. planning process.. ‧. 3. Implementing (after the announcement of the draft plan ):. sit. y. Nat. The urban planning project is drawn up by the urban design committee of the local. io. er. government, and it is implemented after the approbation of the Ministry of the Interior.. al. Sometimes the draft of the plan differs from the final plan due to the different. n. iv n C local and governments. In h ecentral ngchi U. considerations of the. addition, public opinions. sometimes may be accepted by the local government, only to be rejected by the central government. In this step, there is no chance for the public to participate in the planning.. 11.

(24) 立. 政治大. ‧. ‧ 國. 學 y. Nat. sit. n. al. er. io. Figure 2-5. Urban Planning Flow Chart Source: Ke, 2004. Ch. engchi. 12. i Un. v.

(25) 2.2 The Indigenous Right of Participation and Indigenous Community Development The indigenous right of participation can be discussed from the legality of their community development (Lin, 2008).. 2.2.1 The Indigenous Right of Participation . The Declarations of World Summits. The World Ecotourism Summit, hosted in Québec City, Canada, by Tourism Québec. 政治大. and the Canadian Tourism Commission, from May 19 to May 22, 2002, adopted the. 立. Quebec Declaration on Ecotourism (Lee, 2002). The extract of the declaration of. ‧ 國. 學. indigenous rights of participation is as below:. 1. Acknowledge that ecotourism development must consider and respect the land. ‧. and property rights, and, where recognized, the right to self-determination and. y. Nat. io. sit. cultural sovereignty of indigenous and local communities, including their. n. al. er. protected, sensitive and sacred sites as well as their traditional knowledge.. Ch. i Un. v. 2. Stress that to achieve equitable social, economic and environmental benefits from. engchi. ecotourism and other forms of tourism in natural areas, and to minimize or avoid potential negative impacts, participative planning mechanisms are needed that allow local and indigenous communities, in a transparent way, to define and regulate the use of their areas at the local level, including the right to opt out of tourism development.. . The Declaration on the Rights of Indigenous Peoples. On September 13, 2007, the UN General Assembly adopted the United Nations Declaration on the Rights of Indigenous Peoples. Guided by the purposes and. 13.

(26) principles of the Charter of the United Nations, it places good faith in the fulfillment of the obligations assumed by States in accordance with the Charter, affirming that indigenous peoples are equal to all other peoples, while recognizing the right of all peoples to be different, to consider themselves different, and to be respected as such (www.abohome.org.tw 2007.) The extract of the declaration about indigenous right of participation is as below: 1. Indigenous peoples have the right to self-determination. By virtue of that right they freely determine their political status and freely pursue their economic, social and cultural development.. 治政 2. Indigenous peoples have the right to maintain and 大strengthen their distinct political, 立 legal, economic, social and cultural institutions, while retaining their right to ‧ 國. 學. participate fully, if they so choose, in the political, economic, social and cultural. ‧. life of the State.. sit. y. Nat. 3. Indigenous peoples and individuals have the right to belong to an indigenous. io. al. er. community or nation, in accordance with the traditions and customs of the. n. community or nation concerned. No discrimination of any kind may arise from the exercise of such a right.. Ch. engchi. i Un. v. 4. Indigenous peoples shall not be forcibly removed from their lands or territories. No relocation shall take place without the free, prior and informed consent of the indigenous peoples concerned and after agreement on just and fair compensation and, where possible, with the option of return. 5. States shall consult and cooperate in good faith with the indigenous peoples concerned through their own representative institutions in order to obtain their free, prior and informed consent before adopting and implementing legislative or administrative measures that may affect them. 6. States shall consult and cooperate in good faith with the indigenous peoples 14.

(27) concerned through their own representative institutions in order to obtain their free and informed consent prior to the approval of any project affecting their lands or territories and other resources, particularly in connection with the development, utilization or exploitation of mineral, water or other resources. 7. Indigenous peoples have the right to determine the responsibilities of individuals to their communities. From the above, it is clear that the self-determination of the indigenous should be highly respected, anything that may affect them must be well understood, and anything that may change their rights must occur only with their free and informed consent.. 學. ‧ 國. 立. 政治大. 2.2.2 Indigenous Community Development. ‧. Since 2001, the national government has actively promoted a policy of indigenous. Nat. sit. y. community development with the expectation that the industrial development of. n. al. er. io. indigenous communities can be established on the basis of the sustainable utilization. i Un. v. of natural resources. In addition, in the process of community building, the. Ch. engchi. government intends to educate indigenous peoples in relevant areas in order to enable them to operate the community industries and to ensure that the communities share in the benefits of the conservation of natural resources. Currently, in terms of relevant projects that our government has promoted, integrated projects may possibly be applicable to most indigenous peoples. Otherwise, such projects may be considered unique for indigenous peoples, and thus separately planned. Additional specific regulations may be enacted in a plan or project that is applicable to indigenous peoples. Thus, under such circumstances of political emphasis and inclination, the government has a priority to practically implement. 15.

(28) indigenous policy, and it also provides greater protection and guarantees to indigenous peoples in promoting the development of their communities. Related policies on indigenous community development are explained in the next section.. . Social Welfare Policy Guidelines. Among the “Social Welfare Policy Guidelines” passed by the Executive Yuan on February 13, 2010, the contents related to the indigenous community building can be divided into the following three points (Su & Tien, 2004): 1. Every level of governments shall encourage community residents to participate in. 治政 community development, to activate community 大 organizations, to utilize local 立 resources, and to build a vital and autonomous civil society. ‧ 國. 學. 2. The government shall integrate those resources of tourism; industry and commerce;. ‧. agriculture and fishery; the cultural industry; environmental protection; urban and. sit. y. Nat. rural development; historic conservation; education; health; and social welfare, to. io. er. promote the sustainable development of our community and homeland.. al. 3. The government shall connect the tribal cultures and ecological characteristics of. n. iv n C indigenous peoples to promote new tribal overall building construction. The h e the ngchi U strategy of this construction project is to integrate the service resources; to upgrade the ranking of administrative organizations for social welfare; to combine the competent authorities of health and social welfare; as well as to integrate departments of labor, education, agriculture, justice, construction, and indigenous peoples in order to enhance the interdepartmental integration and performance management so as to provide whole-person, whole-process, and all-direction services to improve the efficiency of resource utilization. In addition, it will also integrate community building, tourism, indigenous peoples, and sustainable development to construct a sustainable community that conforms to human nature, 16.

(29) cares about health and welfare, possesses plentiful civil and unique industries, has magnificent landscapes and respects the surrounding ecology.. . The Indigenous Tribal Sustainable Development Plan is based on the framework of. the “Taiwan Six-Star Health Community Project” (Executive Yuan, 2006) to assist Taiwan’s indigenous tribes in inspecting and surveying their cultural and historical context and the current status, advantages, and difficulties in tribal development. With the guidance of tribal organizations (or tribal councils), the project helps indigenous tribes with planning integrated development blueprints and visions, strategies for. 治政 implementing such blueprints, and proposing the大 goals and requirements for phase 立 development. In addition, based on the guidance, the project proposes plans and ‧ 國. 學. applies for government subsidies for tribal building construction projects in order to. sit. y. Nat. 2007 Executing Plan of Indigenous Tribal Industry Development. io. er. . ‧. achieve the goal of “Tribalism (Communism)”.. al. This plan was executed in accordance with the “3-year Executing Plan of Tribal. n. iv n C for Indigenous (2006 to h e n g Peoples chi U. Industry Development. 2008)” enacted by the. Executive Yuan. The purpose is mainly to improve the primary industry, secondary, and tertiary industries that indigenous people depend on to make a living, while incorporating natural,. organic,. pollution-free,. and. low. energy-consumption. characteristics, to achieve the goal of sustainable operation. The plan focuses on the tribal traditional knowledge economic industry, tribal culture industry, tribal ecological tourism industry, tribal lodge and restaurant industry, tribal tourism industry, agricultural and processing industries, tribal characteristic product promotion and marketing development, and benchmarking guidance of development as a principle so as to yield significant benefits in industrial development within a 17.

(30) short-term period. Furthermore, the main purposes of this plan are to establish new indigenous industries based on the originality and innovation build high-quality operating environments, develop cultural ecological tourism, create a firmly-rooted indigenous industry, and provide tribal talents with sufficient employment opportunities (Council of Indigenous Peoples, 2007).. 2.3 Empirical Studies in Taiwan Existing domestic research on public participation can be viewed from the following. 政治大. aspects. First, in the development of relevant public participation theory, Lin and. 立. Wang (1999) explored how to induct the citizen power into policy, and help to. ‧ 國. 學. improve the policy implementation. Hsu (2000) believes that most of the existing literatures focus on the “political behavior”, and limits the function of public. ‧. participation. Hsu (2004) then proposed post-modern crisis of public affairs process,. y. Nat. io. sit. and expounded the functions of citizen participation from the normative point of view.. n. al. er. Secondly, in the form of public participation, Liu (2005) discussed the. Ch. i Un. v. coordination between performance management and public participation mechanisms.. engchi. In related research on the practical use of the citizen participation, Huang (2001) conducted a cost-benefit analysis on people involved in community policing from the economic point of view Ma & Chen (2005) took Kaohsiung as the case, and discussed the development of citizen participation in local decision-making. Lin & Chen (2003) viewed the experience of public participation in the National Health Insurance, and discussed the effectiveness of the citizen conference. In the case of community participation, Lin (2002) interviewed two communities and believed that should design the incentive mechanism to encourage community participation. Zeng (2005) thinks that the community autonomy can be achieved by 18.

(31) the establishment of community participation system. From the above related studies we can know that these empirical studies focus on the process, outcomes and plight of citizen participation. They expect to find the way to promote public participation and establish a rational framework for the general public. Public participation includes decision-makers, the public and the public representatives. Therefore, if we want to investigate the process and effectiveness of public participation, we should first understand the cultural traditions, values and motivation that hidden behind the various participants. Cultural traditions and values. 治政 differences often tend to affect the process and effectiveness 大 of public participation. In 立 most of the citizen participation related researches, the cases which they selected are ‧ 國. 學. the urban areas. So the framework for public participation that they established is only. ‧. applicable to residents in the general area. Therefore, this thesis selects the. sit. y. Nat. background of indigenous areas and studies different cultural traditions and values of. io. al. er. participants. To understand the existing system for public participation in the impact. n. of different participants, and based on the findings to propose improvement methods.. Ch. engchi. 19. i Un. v.

(32) Chapter 3 Research Methods This study employed on qualitative research methods. The author gathered information by document analysis and in-depth interviews, and then, through analysis of the sources, developed responses to the research questions.. 3.1 Data Collection Qualitative research is a naturalistic, interpretative approach concerned with understanding the meanings which people attach to actions, decisions, beliefs, values. 政治大 understanding the mental mapping process that respondents use to make sense of and 立. and the like within their political, economic and social settings, and also with. ‧ 國. 學. interpret the world around them. Qualitative research can describe or provide further understanding of a subject and its contextual setting, provide explanation of reasons. ‧. and associations, evaluate effectiveness, and aid the development of theories or. Nat. io. sit. y. strategies (Ritchie and Lewis, 2003).. n. al. er. This research focuses on citizen participation during the process of the Second. Ch. i Un. v. Overall Review of the Qingquan Scenic Area Project. Since the villagers consist of. engchi. indigenous people, the backgrounds of these aborigines are distinct from those of urban residents. In order to explore citizen participation in this village and understand the residents’ subjective feelings, the author adopted various qualitative research methods for data collection and analysis. The thesis presents document analysis and in-depth interviews. By surveying the relevant international and domestic literature, including journals, books, articles, theses, governmental documents, and newspapers, this researcher organized relevant data about citizen participation and the indigenous right of participation. In addition, official and community documents were rich sources of information on citizen 20.

(33) participation. For the case study, in-depth interviews were conducted to collect information. An in-depth interview is an open-ended, discovery-oriented method that is well suited for describing both program processes and outcomes from the perspective of the target audience or key stakeholder. Two key characteristics of in-depth interviews are open-ended questions and a semi-structured format. Open-ended questions should be worded so that respondents cannot simply answer yes or no, but must expound on the topic. A semi-structured. 政治大 it must also allow questions to flow naturally, based on information provided by the 立. format should have some pre-planned questions to be asked during the interview, but. ‧ 國. 學. respondent. In fact, the flow of the conversation dictates the questions asked and those omitted, as well as the order of the questions (Creswell, 1997). This research adopted. ‧. the semi-structured format during the interview. The author initially developed a list. Nat. sit. y. of questions after collecting relevant secondary-data, but the questions were modified. n. al. er. io. in response to participant responses to the questions.. 3.2 Document AnalysisC h. engchi. i Un. v. Documents, or archived sources, are excellent sources of needs analysis data. During document analysis, documents are analyzed with a question or hypothesis in mind or with a general idea of what the needs analyst is looking for. Document analysis is a superior way to find retrospective information about a performance problem and may be the only way that some types of data may be obtainable (Caulley, 1983). The advantages of document analysis include the following: . Document analysis is a particularly good technique to collect some types of retrospective information. 21.

(34) . Document analysis can be used to collect certain types of information or data easily, quickly, and inexpensively. Background documents can supply information, including basic statistical data, on a variety of issues related to individual or organizational performance.. . Information gathered from documents is often more credible than information or data obtained via interviews, questionnaires, or observation, because the data are historical and often viewed as objective evidence. In this study, the documents analyzed included the “Second Overall Review of. the Qingquan Scenic Area Project”, “Regulations for the periodic overall review of. 治政 Urban Planning”, and the “Urban Planning Act”. 大立 ‧ 國. 學. 3.3 Selection of Interviewees. ‧. In order to understand the process and ideas behind the government proposal of the. sit. y. Nat. “Qingquan Scenic Area Project”, the author intended to interview representatives. io. al. er. from the relevant government departments. The interviewees included officers. n. responsible for tourism and recreation policy and those from the Wufong Township Office.. Ch. engchi. i Un. v. Certain influential local residents in the village tend to represent majority opinion. They communicated with the government on behalf of community residents during the reconstruction process. Five important representatives from church organizations and community development associations were interviewed. The inhabitants of Taoshan Village are key figures in this research. In order to obtain the required information, the author chose ten inhabitants for the research. The author selected inhabitants who were enthusiastic about community affairs, such as members of the Taoshan Elementary School Parents Association and people who volunteered for community service. In addition, in order to reflect opinions from 22.

(35) different classes, workers from different vocations were also selected. The interview sequence was designed as follows: The first step was to interview the government officers in order to shed light on the conception of the “Qingquan Scenic Area Project”. The second step was to interview local representatives to determine how they reached agreement with government departments, and whether these agreements really reflected inhabitants’ opinions. The third step was to interview local inhabitants. Since the local inhabitants were the main beneficiaries of the project, it was very important to understand how they felt about the project and how they participated in the process.. 治政 The interviews were divided into two rounds.大 In the first round of the interviews, 立 half of the interviewees from each group were interviewed, and the interviews ‧ 國. 學. followed the sequence of 1-1 to 1-6 (see Table 3-1). In the second round, the. ‧. remaining interviewees in each group were interviewed. The interviews in the second. sit. y. Nat. round followed the sequence of 2-1 to 2-6. However, the interview sequence of the. io. er. second round could be modified according to the interview situation of the first round. Table 3-1. Interview Subjects. al. n. Group. C hInterviewee U n i Officer of Hsinchu e n g Tourism c h i and. v. Code Name. Sequence. G1. 1-1. Officer of Council of Indigenous People. G2. 2-1. Member of Wufong Township Office. G3. 1-2. Qingquan Community Development Association. L1. 1-3. Taoshan Elementary School Teacher. L2. 1-4. Member of Church Organization. L3. 2-2. Five Residents. R1~R5. 1-5. Five Residents. R6~R10. 2-3. Recreation Department Government. Local Community. Residents Source: Author. 23.

(36) 3.4 Interview Process During the interview process, the person in charge of the “Qingquan Scenic Area Project” in the Council of Indigenous Peoples, Executive Yuan, was not willing to be interviewed. Therefore, the interviews did not gather the point of view of the officer of the Council of Indigenous Peoples. In addition, the person in charge of the “Qingquan Scenic Area Project” in the Tourism and Recreation Department, Hsinchu County Government, had already resigned. The incumbent staff member was not highly familiar with the project, so he could provide only partial information. Due to time limits, only six interviewees were interviewed. The interview flow chart is presented in Table 3-2.. 立. 政治大. ‧ 國. 學. Table 3-2. The Interview Flow Chart Code Name Interviewee Wufong Township Head. 2010.5.12. y. Nat. Qingquan Community Development. n. al. er. io. Association. 2010.5.12. sit. L1. ‧. G3. Date. Ch. i Un. v. L2. Manager of Minduyou Carving Classroom. 2010.5.12. R1. Resident. 2010.5.17. R2. Resident. 2010.5.17. L3. Member of Church Organization. 2010.5.19. G1. Officer of Hsinchu Tourism and Recreation. 2010.5.26. engchi. Department R3. Resident. 2010.6.1. R4. Resident. 2010.6.2. R5. Resident. 2010.6.2. 24.

(37) R6. Resident. 2010.6.2. Source: Author. 3.5 Interview Questions This researcher interviewed people and groups related to the reconstruction project of Qingquan in order to understand the process of public participation in the Second Overall Review of the Qingquan Scenic Area Project. Following the semi-structured format, the author drew up question outlines for different interviewees. Based on the. 政治大 classified the interview questions according to different purposes. Each interview 立. question outlines, the in-depth personal interviews were conducted in turn. The author. ‧ 國. 學. question had its corresponding purpose. If the interviewee’s answers were too concise to sufficiently answer the question, the author asked more concrete questions. For the. Nat. er. io. sit. 3.5.1 Interview Questions for Government Officers. y. ‧. interview questions, please refer to the appendices.. al. iv n C h e n7gconcepts. questions were designed to evaluate c h i UFor the interview questions, please n. In the first stage of the interviews, the interviewees were government officers. The. refer to Table 3-3. Citizen participation is defined as the processes in which individuals, groups, and organizations have the opportunity to participate in making decisions. As such, it is “bottom-up” development. Since the government is the power holder, it was important to clarify the government’s understanding of citizen participation first (Q1, Q2, and Q3). This study also aimed to clarify the process of public participation in the urban planning, and it was important to view the process from the government’s perspective (Q4). From Arnstein’s ladder concept, the degree of citizen participation. 25.

(38) depends on the relationship between the residents and government. Thus, another goal of the interview was to understand the interactions between them (Q5). Due to the incompleteness of information in the aboriginal tribes, the interview aimed to determine whether the selection of public participation techniques was suitable for the local circumstances (Q6, Q7). Involving the public in an aboriginal area is a challenge for planners because these circumstances differ from the norm. The interview was also designed to gather the opinions of government officers on this challenge (Q8, Q9). Table 3-3. The Interview Questions Design of the First Stage. 政治大 What aspects did you consider in drawing up the 立 project? Interview Question. n. Ch. engchi U. y. v ni. 4. Describe the process and situation of participation. 5. Describe the relationship with the local residents during the planning process. What role did the government department play? Describe the communication process and results. 6. How can citizen participation in public affairs be promoted and helped? What method is better for promotion?(e.g., subsidies or popularization) 7. Were you able to receive citizens’ opinions accurately during the reconstruction process? 26. Understanding. sit. io. al. er. Nat. 2. Do you understand the meaning and spirit of citizen participation? What are the conditions and styles of citizen participation?. ‧. Professional or localization? Were there conflicts between these two aspects?. 3. Please talk about the vendors’ problems.. Role and Attitude. 學. . ‧ 國. 1.. Concept. Process of Operating Process of Operating. Interaction and Relationship. Promotion.

(39) . Is the style of citizen participation a good way for the citizens to express their opinions? Do you have better ideas on the citizen participation technique?. Process of Operating. 8. What are your expectations for the Qingquan Scenic Area? Are you satisfied with the results？. Experience. 9. According to your experience, what is the difficulty with citizen participation in an aboriginal village? How can the problem of culture differences be solved? How can the dissemination of information be improved?. 立. Source: Author. Difficulty. 政治大. ‧ 國. 學. 3.5.2 Interview Questions for Local Representatives. In the second stage of interviews, the interviewees were local representatives. The. ‧. purposes of the questions were to classify 6 concepts. For the interview questions. y. Nat. sit. please refer to Table 3-4.. n. al. er. io. According to the McDonald Model, the elected representatives play important. i Un. v. roles during the processes of plan-making. Through the interaction between the public,. Ch. engchi. planners and elected representatives, the goals of citizen participation can be achieved. Therefore, the elected representatives should be familiar with the concept of citizen participation (Q1, Q2). This study aims to understand the process of public participation in the Second Overall Review of the Qingquan Scenic Area Project, and it is important to view the process from the angle of the local representatives (Q3). Through analyzing the interaction between local representatives and government, it is possible understand how they interacted when the vendors protested against the dismantling and evaluate about the process and outcome of the post-disaster reconstruction (Q4, Q5). 27.

(40) Table 3-4. The Interview Questions Design of the Second Stage Interview Question. Research Purpose. 1. What’s your role and function in this community?. Role and Attitude. 2. Do you understand the meaning and spirit of citizen participation? What are the conditions and styles of citizen participation? . Understanding. What style of citizen participation did you expect?. 3. Describe the process and situation of participation. Were your suggestions adopted? How did you learn about the public meeting? What difficulties did you encounter during the participation process?. 政治大 4. Describe the relationship 立 between the local residents and. Process of Operating. Interaction and Relationship. ‧. ‧ 國. 學. the government during the reconstruction process. How did local residents interact with government? How did government interact with local residents?. n. al. er. io. sit. y. Nat. 5. How did the government promote and help local residents to participate in public affairs during reconstruction process? Which methods do you apply? How did you collect the opinions of the majority of the residents? How did you help disadvantaged people express their opinions?. Ch. engchi. i Un. v. Promotion. 6. What were your expectations of the recovery results? Do you think the results of the reconstruction of the Result. project met your expectations? . Do you have any suggestions about the outcome of the reconstruction?. . Please talk about the vendors’ problems.. Source: Author. 3.5.3 Interview Questions for Residents In the third stage of interview, the interviewees were local inhabitants. The purposes 28.

(41) of the questions were to clarify 5 concepts. For the interview questions, please refer to Table 3-5. Residents from different backgrounds will have different points of view about citizen participation and different evaluations of the outcome. Therefore, the background of the residents should be determined first (Q1). In the Travis Model, the public plays a leading role in planning. Thus, the residents’ conceptions of citizen participation decide the aspects of the planning (Q2).This study aims to understand the process of public participation in the Second Overall Review of the Qingquan Scenic Area Project, and it is important to view the process from the perspectives of. 治政 the local residents. By understanding the process 大 of participation, we can determine 立 whether the residents were involved in the project (Q3). Since the public participation ‧ 國. 學. continuum processes include information exchange, public consultation, engagement,. ‧. shared decisions, and shared jurisdiction, the interaction between participators. sit. y. Nat. influences the extent of involvement in decision making (Q4). The factors which. io. er. affect citizen participation include participators, citizen participation techniques, and. al. citizen participation results. From the residents’ evaluation of the outcome of the. n. iv n C planning, we can determine whether residents’ opinions were really accepted by h e nthe gchi U the government (Q5).. Table 3-5. The Interview Questions Design of the Third Stage Interview Question. Research Purpose. 1. What’s your background? Age, job, and education.. Role and Attitude. 2. Do you understand the meaning and spirit of citizen participation? What are the conditions and styles of citizen participation?. 29. Understanding.

(42) . What style of citizen participation did you expect?. 3. Describe the process and situation of participation. Were your suggestions adopted? How did you learn about the public meeting? What difficulties did you encounter during the participation process?. Process of Operating. 4. Describe the relationship with the local representatives and government during reconstruction process. How did local representatives interact with the government? How did the government interact with local representatives?. Interaction and Relationship. 政治大. 5. What were your expectations of the planning results? Do you think the results of the project met your expectations?. Result. ‧ 國. 學. . 立. Do you have any suggestions about the outcome of the reconstruction?. ‧. What are your ideas about the vendors?. io. sit. y. Nat. Source: Author. n. al. er. . Ch. engchi. 30. i Un. v.

(43) Chapter 4 Qingquan Scenic Area In this chapter, the author introduces the location of Wufong Township first. Second, the population and economic structure of Wufong are described. After that, the background and contents of the “Second Overall Review of the Qingquan Scenic Area Project” are presented.. 4.1 Introduction of Wufong Township Wufong is a town in Hsinchu County in northern Taiwan. There are four villages in Wufong (Dayi Village, Taoshan Village, Huayuan Village, and Chulin Village) with. 政治大. the township committee located in Dayi Village. In 2009, it had an estimated. 立. population of 4,750, and the area of the administrative region is 227.738 square. ‧. ‧ 國. 學. kilometers.. n. er. io. sit. y. Nat. al. Ch. engchi. i Un. v. Figure 4-1. Location of Wufong Township in Hsinchu County Source: Adapted from Hsinchu County Urban Planning (2008). 31.

(44) 4.1.1 Population of Taoshan Village Taoshan Village, the largest village in Wufong, has a population of 1,677. The population increased only in 2001 and 2005, and the average population growth rate is -0.5 % (see Table 4-1). Because Taoshan Village is in a mountainous area, it is hard for residents to make a living. Many of the residents move to the city to find jobs. Table 4-1.Taoshan Village Population Statistics. -15. -0.85. 533. 2000. 557. 1,740. 1,016. 724. -12. -0.68. 577. 1,895. 1,094. 801. 155. 8.91. 586. 1,813. 1,062. 751. -82. -4.33. 595. 1,787. 1,034. 753. -26. -1.43. 619. 1,753. 1,011. 742. -34. -1.90. 644. 1,778. 1,009. y. 743. 1999. 769. 25. 1.42. 650. 1,712. 964. sit. -0.34. ‧. -6. 524. 學. 757. 1998. 748. -66. -3.71. io. Growth Rate (%). 513. 1,677. 961. -35. -2.09. 2002 2003 *2004 2006 Average Growth Rate. 642. al. n. 2007. Nat. 2005. ‧ 國. 2001. 1,012. Growth Number (person). 1997. 立. 1,773. Females (person). er. Year. Households Population Males (family) (person) (person). 1,767 治 1,010 政大 1,752 1,009. Ch. engchi. i Un. 761. 716. v. -0.50. * Wufong Township was hit by Typhoon Aere in 2004. Source: Wufong Township Household Registration Office (2008). The Qingquan Scenic Area is located within Taoshan Village, and the region includes Neighborhoods 5, 6, 7, 8, 9, 10, 13, 14, 15, 16, and 17. According to population statistics from the Wufong Township Household Registration Office, 853 people live in the Qingquan scenic area, 788 people of whom are aborigines. The population density is 10.75 person / hectare, and the gender ratio is 4:3 (see Table 4-2). 32.

(45) Table 4-2. Population Condition of Qingquan Scenic Area Item. Area Household (hectare) (family). Population Density Total Male Female (person/hectare). 79.3830. 853. 315. Population (person). 487. 356. 10.75. Gender ratio (M:F) 4:3. Source: Wufong Township Household Registration Office (2008).. The base unit of Taoshan Village is the family, and it also has other important organizations such as church organizations (the Catholic Church and the Presbyterian Church) and community development associations. The tribal leaders are the village. 政治大. head, the pastors, and the elders in the village. They usually help to coordinate the. 立. important affairs of the village.. ‧ 國. 學. 4.1.2 Education and Economic Structure. ‧. The level of education of Wufong Township is lower than the average level in. y. Nat. sit. Hsinchu County (see Figure 4-2). The dominant level of education of Wufong. n. al. er. io. Township is senior high school, accounting for 31.86%; second is junior high school,. i Un. v. accounting for 26.74%, and last is primary school, accounting for 23.44%.. Ch. engchi. Wufong Township relies mainly on the primary and secondary industries for jobs. The economic structure of Wufong is mostly agriculture, and the agricultural population is 31.6%. Apart from their agricultural income, the residents still need to do other jobs to supplement their income.. 33.

(46) eg at ne cr eP. 45 40 35 30 25 20 15 10 5 0. Wufong Township Hsinchu County. ol rsity hool hool hool hool tudy racy o h c ive Sc Sc Sc Sc lf-S llite S I e Un ional High High ntary Se at u d t a ca ior or me Gr Vo Sen Juni Ele Figure 4-2. Level of Education Comparison Sheet Source: Hsinchu County Budget, Accounting and Statistics Department (2008).. 立. 政治大. ‧ 國. 學. 4.2 Introduction of the Qingquan Scenic Area Project. ‧. 4.2.1 Background of the Qingquan Scenic Area Project. sit. y. Nat. io. er. Qingquan Scenic Area, located in Taoshan Village, is surrounded by green mountains. al. and clear water. Four suspension bridges, each about 100m long, span the river. They. n. iv n C suspension bridges Township, h e ningWufeng chi U. are the oldest. and they are carefully. maintained. Qingquan has been famous for its beautiful scenery and hot springs since the period of Japanese rule. In order to develop tourism, the Hsinchu Government commissioned the Taiwan Residence and Urban Development Bureau to draft the Qingquan Scenic Area Project and implement it on September 3, 1982. This project was modified twice between 1982 and 2001. As a result of Typhoon Aere on August 25, 2004, the torrential rains scoured a new channel down the hillside. Serious landslides are frequent in this area after heavy rain, threatening the local residents’ life and property. It also had a great impact on the tourism (Figures 4-3, 4-4). 34.

(47) 政治大 Figure 4-3. Mudslides in Taoshan Village after Typhoon Aere 立 Source: Soil and Water Conservation Bureau Council of Agriculture ‧. ‧ 國. 學. n. er. io. sit. y. Nat. al. Ch. engchi. i Un. v. Figure 4-4. Landslides in Qingquan Scenic Area after Typhoon Aere Source: Soil and Water Conservation Bureau Council of Agriculture. To solve these problems caused by the typhoon, the Hsinchu government decided to review the project. The “Second Overall Review of the Qingquan Scenic Area Project” was announced and implemented on June 30, 2006 (Table 4-3). The 35.

(48) main purposes of the project were to redevelop tourism in the Qingquan Scenic Area, and to solve the problem of landslides.. Table 4-3. Qingquan Scenic Area Project Schedule Title. Date. 1 Qingquan Scenic Area Project. September 3, 1982. 2 Modifying Qingquan Scenic Area Project. November 9, 1993. 3 First Review of Qingquan Scenic Area Project. March 27, 2001. 4 Second Review of Qingquan Scenic Area Project. June 30, 2006. 政治大 Several important events 立 concerning the Second Overall Review of the Qingquan. Source: Hsinchu County Urban planning (2008).. ‧ 國. 學. Scenic Area Project happened after typhoon. The Hsinchu government held two public meetings at Taoshan elementary school in Wufong Township, and this project. ‧. was approbated by the Ministry of the Interior on March 18, 2008.. sit. al. n. 2004/08/25. er. io. Time. y. Nat. Table 4-4. Important Events of the Second Overall Review of the Qingquan Scenic Area Project. 2005/08/12~2005/09/10. Ch. Events. iv n i U overall Review of the e n g c“hSecond. Wufong Township hit by Typhoon Aere Qingquan Scenic Area Project” posted for 30 days. 2006/02/16~2006/03/17. “ Second overall Review of the Qingquan Scenic Area Project” exhibited for 30 days. 2006/03/09. Public meeting held in Taoshan elementary school. 2006/04/12. Project adopted by Hsinchu Urban Design Commission in meeting No.206. 2006/07/28. Project adopted by Hsinchu Urban Design Commission in meeting No.209. 2006/11/20. Project adopted by Hsinchu Urban Design Commission in meeting No.212 36.

(49) 2008/03/18. Project adopted by Ministry of the Interior Urban Design Commission in meeting No. 678. 2008/05/28~2008/06/26. “ Second overall Review of the Qingquan Scenic Area Project” exhibited for the second time. 2008/06/11. Second public meeting held in Taoshan elementary school. Source: Hsinchu County Urban planning (2008).. 4.2.2 The Contents of the Second Overall Review of the Qingquan Scenic. Area Project. 立. 政治大. The purpose of the project was to redevelop tourism in the Qingquan Scenic Area. In. ‧ 國. 學. accordance with the characteristics of Wufong Township, the three major aspects of development were hot spring tourism, Chang Syue-Liang's Former Residence and the. ‧. natural scenery (Figure 4-5, 4-6).. n. er. io. sit. y. Nat. al. Ch. engchi. i Un. v. Figure 4-5. Three Aspects of Development of the Qingquan Scenic Area Project Source: Hsinchu County Urban planning (2008).. 37.

(50) 立. 政治大. ‧. ‧ 國. 學. n. er. io. sit. y. Nat. al. Ch. engchi. i Un. Figure 4-6. The Qingquan Scenic Area Tourism Design Source: Hsinchu County Urban planning (2008).. 38. v.

(51) The subjects of the project are introduced as follows: . Chang Syue-Liang's Former Residence:. After the Nationalist government came to Taiwan its remoteness prompted Chiang Kai-shek to choose Qingquan as the place to keep Chang Syue-Liang (Mr. Chang Syue-Liang, an important figure in the Xi’an Incident) under house arrest. Chang lived here, like a recluse, for more than a decade.. 立. 政治大. ‧. ‧ 國. 學. n. er. io. sit. y. Nat. al. i Un. v. Figure 4-7. The Chang Syue-Liang's Former Residence Source: Travel of Hsinchu County (2008).. Ch. engchi. The house of San Mao: The late writer San Mao, a famous Taiwanese author who passed away in 1991, took a fancy to the carefree mountain atmosphere, and she rented an old brick house in which to construct her Qingquan story. About 50m upstream of the Luohao Suspension Bridge in Taoshan Village is the house of San Mao, The ruins of the house remain today.. 39.

(52) Figure 4-8. The House of San Mao Source: Travel of Hsinchu County (2008).. 立. Qingquan Bathing Pool:. 政治大. ‧ 國. 學. The Qingquan Hot Springs are well known far and near, and the Qingquan Bathing Pool is one of the eight scenic spots in Hsinchu. The bathing pool is situated in a. ‧. natural cave.. n. er. io. sit. y. Nat. al. Ch. engchi. i Un. v. Figure 4-9. Qingquan Bathing Pool Source: Travel Bureau of Hsinchu County (2008).. 40.