從五都兩週年反思原住民族自治與地方自治的交錯

Rethinking Indigenous Rights in Taiwan: Two Years after the 2010 Metropolitan Elections

五都體制於2010年正式上路。這項多層次的制度改造工程，為台灣地方自治史開啟了新頁。不過，由於此項改革所涉層面既深且廣，內部磨合及其所帶來的衝擊，在風光上路兩週年之際也一一浮現。在各項問題中，本次制度轉換對原住民族的影響極為深遠，卻也常為人所忽略。基此，本文擬從理論與實際等兩個面向，檢視五都上路對原住民族所帶來的挑戰。分析後發現，五都新制使轄下的原住民鄉鎮成為市政府的派出機關，這使得這些區域裡各層次的原住民自治都出現停擺。此外，五都體制創造出一「新都市原住民」的類別。這群身處原鄉的「新」都市原住民，一體適用了地方行政制，致使五都在拉近區域差距的大纛下，出現非預期性的區與區間失衡。最後，由於地方制度法修正之初，並未特別考量原住民族的需求，以致傳統山地原住民（山原）區的區長選派、山原市議員議席劃定、選出等問題上都出現問題。本文認為，在原住民族自治法尚未通過之前，吾人宜審慎思考是否回復各都山原區的自治如此一來，一方面可提早對原住民族全面自治做準備，他方面亦可落實憲法及原住民族基本法所賦予的原住民族自治保障。在結論處本文並特別說明，五都對原住民議題最大的啟示，在於它提供了一個從都市的角度出發，實現原住民族全面自治的另一種可能。

After the so-called 2010 metropolitan elections, the formation of local government in Taiwan has ever changed: on the one hand, four new special-municipalities (New Taipei, Taichung, Tainan, and Kaohsiung) have been created; the county-level elections, on the other, have been officially putting into an end. One year after the election, it is time to revisit these changes. This article examines the nature of this reform through the lens of indigenous autonomy. I argue that although it seemed a much-needed reform back in the time, it may have done more harm than good indigenous peoples. More specifically, the present system abandons the long-lasting autonomy; therefore, it severely limits the practice of substantive democracy at the local level. Without the power of self-control, indigenous peoples in Taiwan are more likely to be sinicizated/assimilated, which, needless to say, is especially harmful to these already-vulnerable groups. Re-introducing autonomous devices in indigenous townships is desperately needed, I argue.