以比較法觀點檢討濕地保育法中濕地的定義

Review the Definition of Wetland in Taiwan’s Wetland Conservation Act from Comparative Law Perspective

隨濕地保育法自民國105年實施以來，在實務操作上多生爭議。大多集中在重要濕地評定、物種保育、土地範圍劃定與濕地利用方式的問題之上。由於立法總說明中指出濕地保育法係參考蘭莎公約與其他國家之法例所制定，因此，本文採用比較法觀點，整理、分析蘭莎公約、歐盟指令、美國清潔水法等跟濕地有關的規定，檢討關於濕地之定義、分類方式、生態相關名詞定義與問題。經過討論之後，我國濕地保育法中有下列問題：（1）我國濕地保育法在濕地的分類與重要濕地的分類方式獨特，跟立法時參考的立法例不同；（2）我國濕地的要素也和立法參考例不同，我國濕地的要素僅有水文與地理區域兩大要件，相對其他立法例而言較為簡單；（3）立法時引用過多科學內容的專業用語，卻缺乏法律效果；（4）濕地生態旅遊的主要問題在於我國濕地保育法的保護標的沒有放在濕地的自然生態系統，而是放在濕地的土地利用方式；（5）同時也欠缺在水文資料、水生動植物資料、土壤資料的研究、統計上面的數據，對於界定濕地的生態承載力也比較困難。進而影響到濕地的利用與管理方式，影響到觀光休憩品質的維持與維護。因此，本文建議中央主管機關應加速濕地保育法的修法，應該修改的部分應包含濕地之定義與要件的修訂，應增加濕地的要件為濕地動物、水生植物、土壤與地理區域等四大要件，並應該利用調查濕地要件的機會增加生態基礎資訊的收集與調查，以便瞭解濕地的生態承載力，達成環境保護與經濟發展共進的目標。

After the Wetland Conservation Act passed and entered into forced in 2015, the implementation of this law leads several concerns and disputes. Most of the disputes surrounds on the evaluation of wetland of importance, species conservation, scope delimitation and utilization of wetland nature resources. Since the legislation statement of the Act explained this Act referred and learned the legislative examples of from Ramsar Convention and other countries, this article adopted the legal comparison method to analyze and review related regulations from Ramsar Convention, EU Directive and US Clean Water Act, including the definition of wetland, type of categories, definition of biology and biological tourism. After discussion, five issues were found on the Act: (1) the definition of wetland on the Act is unique and different from the referral legislations; (2) the elements of wetlands on the Act is simple and also different from the referral legislations; (3) many scientific norms were adopted by the Act but lacks of legal effects; (4) the major concerns on the promotion of biological tourism is the main purpose of the Act is utilization of the wetlands but not their nature biology system. (5) it is hard to define environment carrying capacity since the management institution does not collect data including hydrology, wildlife, aquatic plants and hydrological soil. It further affects the utilization and management on the wetland, including the quality maintenance of the wetland biological tourism and entertainment. Therefore, this article suggests the central competent authorized agency shall accelerate the preparation of amendment on the Act and shall add the elements on the definition of the wetland as wildlife, aquatic plants, hydrological soil and geographic conditions; they shall also collect fundamental biological data on the wetland by engaging of wetland investigation. It helps the maintenance of wetland biology and biological tourism, and also helps to goal accomplishment of environment protection and economic development on wetlands.