A Comparison of the Natural Resource Management Regimes of Tasmania and Taiwan by Henry Cheng-li Chen B Sc, Chinese Culture University, Taipei, M Env St, University of Tasmania Submitted in fulfilment of the requirements for the degree of Doctor of Philosophy (Environmental Studies) Centre for Environmental Studies School of Geography and Environmental Studies University of Tasmania Hobart, Australia February, 2000 DECLARATION Accept where duly acknowledged, this thesis contains no material which has been accepted for the award of any degree or diploma in any tertiary institution and, to the best of the candidate's knowledge and belief, contains no material previously published or written by another person, expect when due reference in made. Signed AUTHORITY OF ACCESS This thesis may be made available for loan and limited copying in accordance With the Copyright Act 1968. Signed •/1-1///---- i'2-41/° I. ABSTRACT This thesis examines and compares two natural resource management regimes, those of the Australian State of Tasmania and the sovereign state of Taiwan, with a focus upon their respective terrestrial natural reserve systems. Recommendations for future improvements are made for both islands. Taiwan is an island about half the size of Tasmania, yet the former has a population more than 48 times greater than the latter. The two island ecosystems are similar in some respects, but the contrasts are more marked than the similarities. It would be beneficial for both islands to share their experiences of natural resource management. This study undertakes such a comparison with a view to facilitating exchange of knowledge in the field of environmental management. Despite its dramatically smaller population, Tasmania's terrestrial natural resource management is more highly developed than Taiwan's in some respects. For example, the New Public Management (NPM) model has been employed as a framework for regime reform in Tasmania, but not in Taiwan. There is, nevertheless, room for improvement in planning and practice on both islands. The Tasmanian government structure provides a more integrated approach to natural resource management, especially with regard to its nature reserve system, and Taiwan could learn from this in planning for the future. The successful Landcare movement and accumulated treaty-derived conservation experience, in, for example, World Heritage Area and Ramsar site management, are appropriate for adaptation in Taiwan to foster community involvement and prepare itself for the transition to involvement in international affairs. On the other hand, the integrated environmental education coordination across governmental agencies in Taiwan, although not yet implemented, could be considered as a future approach in Tasmania. ACRONYMS AAEE Australian Association for Environmental Education ACF Australia Conservation Foundation AEC Australian Education Council ANM Australia Newsprint Mills CDC Curriculum Development Centre (Australia) CITES Convention on International Trade in Endangered Species COA Council of Agriculture (Taiwan) CP Community Partnership section (Tasmania) CPA Construction and Planning Administration (Taiwan) CVFS Community, Visitor and Field Services branch (Tasmania) DELM Department of Environment and Land Management (Tasmania) DLPW Department of Lands, Parks and Wildlife (Tasmania) DNPWS Department of National Parks and Wildlife Service (Tasmania) DP IF Department of Primary Industry and Fisheries (Tasmania) DPIWE Department of Primary Industries, Water and Environment (Tasmania) DPWH Department of Parks, Wildlife and Heritage (Tasmania) EPA Environmental Protection Administration (Taiwan) FT Forestry Tasmania HEC Hydro-electric Corporation (Tasmania) KMT Kuo Min Tang (Nationalist Party, Taiwan) LEAP Landcare and Environmental Action Prop-am (Australia) MAR minimum areas required MOE Ministry of Education (Taiwan) MVP minimum viable populations NCSA National Conservation Strategy for Australia NFF National Farmers' Federation (Australia) NGOs Non Government Organisations NLP National Landcare Prop-am (Australia) NPM New Public Management NPWS National Parks and Wildlife Service (Tasmania) NSCP National Soil Conservation Program (Australia) NSESD National Strategy for Ecologically Sustainable Development (Australia) RMPS Resource Management and Planning System SCAC Soil Conservation Advisory Committee (Australia) SCS Soil Conservation Strategy (Australia) SDAC Sustainable Development Advisory Council (Tasmania) SPP Act State Policies and Projects Act (Tasmania) Tas Tasmania TW Taiwan UN United Nations UNEP United Nations Environmental Program UNESCO United Nations Educational, Scientific and Cultural Organisation UNSO United Nations Statistics Office WBSC Wild Bird Society, Republic of China (Taiwan) WHA World Heritage Area WRB Water Resources Bureau (Taiwan) YMSNP Yang Ming Shan National Park (Taiwan) TABLE OF CONTENTS CHAPTER 1 INTRODUCTION 1 1.1 ORIGIN OF THE RESEARCH 1 1.2 RESEARCH OBJECTIVES 2 1.3 METHODOLOGY 3 1.3.1 Literature review: the collection and analysis of related documents 4 1.3.2 Critical comparison: review of structures and environmental practices 4 1.3.3 Qualitative survey: interviews of management personnel from different agencies 4 1.4 LIMITATIONS OF THE STUDY 5 1.4.1 A new study 5 1.4.2 An interdisciplinary study 5 1.4.3 Survey restriction 6 1.4.4 Time and finance constraints 7 1.5 THESIS OUTLINE 7 CHAPTER 2 GEOGRAPHY, POPULATION AND NATURE RESERVES IN TASMANIA AND TAIWAN 9 2.1 GEOGRAPHY AND PHYSIOGRAPHY OF TASMANIA 11 2.2 GEOGRAPHY AND PHYSIOGRAPHY OF TAIWAN 13 2.3 COMPARISON OF PHYSIOGRAPHY OF TASMANIA AND TAIWAN 16 2.4 THE TERRESTRIAL NATURE RESERVE SYSTEM IN TASMANIA 17 2.4.1 National Parks in Tasmania 17 2.4.2 Tasmanian Wilderness World Heritage Area 20 2.4.3 Other reserves in Tasmania 20 2.5 THE TERRESTRIAL NATURE RESERVE SYSTEM IN TAIWAN 21 2.5.1 National Parks in Taiwan 22 2.5.2 Other reserves in Taiwan 24 CHAPTER 3 THE FRAMEWORK OF CONTEMPORARY ORGANISATIONAL REFORM — FROM TRADITIONAL PUBLIC ADMINIS "RATION TO NEW PUBLIC MANAGEMENT 25 3.1 TRADITIONAL PUBLIC ADMINISTRATION 25 3.1.1 Critiques of the traditional public administration 26 3.2 NEW PUBLIC MANAGEMENT 28 3.2.1 Critiques of the New Public Management 31 33 ORGANISATIONAL REFORM IN TASMANIA 33 3.4 POTENTIAL ADOPTION OF NPM IN TAIWAN 38 CHAPTER 4 POLITICAL BACKGROUNDS: TASMANIA AND TAIWAN 39 4.1 THE POLITICAL SYSTEM IN TASMANIA 39 4.2 THE POLITICAL SYSTEM IN TAIWAN 44 4.3 ENvIRONMENTAL POLITICS IN TASMANIA: A CASE STUDY OF THE FRANKLIN-GORDON RIVERS CAMPAIGN 46 4.4 ENVIRONMENTAL POLITICS IN TAIWAN: A CASE STUDY OF THE CHILAN FORMOSAN CYPRESS FOREST CAMPAIGN 55 4.5 COMPARISON OF TASMANIAN AND TAIWANESE CASE STUDIES 62 CHAPTER 5 TERRESTRIAL ENVIRONMENT-RELATED GOVERNMENTAL DEPARTMENTS 68 5.1 TERRESTRIAL ENVIRONMENTAL MANAGEMENT-RELATED GOVERNMENT DEPARTMENTS IN TASMANIA 70 5.1.1 Commonwealth government level 70 5.1.2 State government level 71 5.1.2.1. Department of Primary Industry, Water and Environment 71 5.1.2.2 Forestry Tasmania 80 5.1.2.3 Hydro-electric Corporation 83 5.1.3 Local government 87 5.1.4 Summary 89 5.2 TERRESTRIAL ENVIRONMENTAL MANAGEMENT-RELATED GOVERNMENT DEPARTMENTS IN TAIWAN 91 5.2.1 Central government level 92 5.2.1.1 Council of Agriculture 93 5.2.1.2 Construction and Planning Administration 96 5.2.1.3 Environmental Protection Administration 98 5.2.1.4 Ministry of Economic Affairs 100 5.2.1.5 Ministry of Education 102 5.2.2 Provincial and Special Municipal Government 105 5.2.2.1 Taiwan Provincial Government 105 5.2.2.2 :Taipei and Kaohsiung Special Municipal Governments 106 5.2.3 County and City Government 108 5.2.4 District Government 109 5.2.5 Summary 110 53 COMPARISON OF GOVERNMENT STRUCTURE AND FUNCTIONS BETWEEN TAIWAN AND TASMANIA 112 CHAPTER 6 ENVIRONMENTAL PROBLEMS AND MANAGEMENT REVIEW IN TASMANIA AND TAIWAN 119 6.1 THE NEED FOR SYSTEMIC ENVIRONMENTAL INFORMATION: TASMANIA'S STATE OF THE ENVIRONMENT REPORT 119 6.2 CONSERVING BIODIVEFLSITY 127 6.2.1 Relationship to international treaties, programs and agencies: the Ramsar reserve system 131 6.2.2 The Ramsar convention 132 6.2.3 Ramsar sites in Tasmania 134 6.2.4 A potential Ramsar site in Taiwan 136 6.2.5 Summary 141 63 WATER AND SOIL CONSERVATION 141 6.3.1 Landcare 143 6.4 CHANGING ENVIRONMENTALLY DESTRUCTIVE BEHAVIOUR: ENVIRONMENTAL EDUCATION 148 6.4.1 Environmental education in Australia, including Tasmania. 151 6.4.2 The broader context of environmental education in Australia, with special reference to Tasmania. 156 6.4.3 The formal education system in Australia, with special reference to Tasmania 158 6.4.4 Outdoor education in Australia, with special reference to Tasmania 159 6.4.5 Problems of environmental education in Australia, with special reference to Tasmania 161 6.4.6 Profile of environmental education in Taiwan 163 6.5 SUMMARY 165 CHAPTER 7 TERRESTRIAL RESERVE SYSTEMS 167 7.1 INTRODUCTION 167 7.2 FORMATION OF WESTERN NATURE RESERVE SYSTEMS 169 73 NATURE RESERVES CLASSIFICATION 170 7.4 DESIGN THEORIES AND MODELS FOR NATURE RESERVES 173 7.4.1 Nature reserve design variables: shape 174 7.4.2 Nature reserve design variables: size 175 7.5 DIVEFtSITY AND DIFFERENT NEEDS FOR MANAGEMENT OF NATURE RESERVES 177 7.6 GUIDELINES FOR ECOLOGICAL MONITORING AND RESEARCH FOR NATURE RESERVES178 7.7 CRITIQUES OF WESTERN NATURE RESERVES 180 7.8 NATURE RESERVES MANAGEMENT: A MULTIPLE TASK 183 7.9 APPLICATIONS TO TAIWAN AND TASMANIA 184 7. 10 SUMMARY 186 CHAPTER 8 KEY PERSONS INTERVIEWS - RESULTS AND DISCUSSION 188 8.1 INTRODUCTION 188 8.2 METHODS 189 8.2.1 Interview structure 190 8.3 RESULTS AND DISCUSSION 196 8.3.1 Question 1 196 8.3.2 Question 2 200 8.3.3 Question 3 203 8.3.4 Question 4 207 8.3.5 Question 5 209 8.3.6 Question 6 211 8.3.7 Question 7 214 8.3.8 Question 8 219 8.3.9 Question 9 222 8.4 SUMMARY 224 CHAPTER 9 DISCUSSION AND RECOMMENDATIONS 225 9.1 EXPERIENCE EXCHANGE 225 9.2 GOVERNMENTAL STRUCTURE 228 9.3 ENVIRONMENTAL PROBLEMS AND RESOLUTIONS 231 9.4 CONCLUSION 235 REFERENCES 237 APPENDIX A 256 APPENDIX B 285 TABLE OF FIGURES Figure 1.