城市空間與山中歲月－－論五都後的原住民族集體權

Urban Space Versus Mountains Years: The Collective Rights of Aboriginal Peoples in the Ages of Five Municipalities

2009年6月內政部審查11縣市改制升格案，通過臺北縣、臺中縣市、高雄縣市和臺南縣市升格案，連同臺北市，五個直轄市將一改臺灣現有行政區版圖。升格直轄市的最大特色在將原來不相隸屬的鄉、鎮合而為一，其中衝擊最大者當屬原為「山地原住民鄉」的烏來鄉、和平鄉、桃源鄉、茂林鄉及那瑪夏鄉。「直轄市」讓「山地原住民」有了城市居民的想像，城市將是理想的治理空間？抑或山林才是原住民族的歸宿？其間涉及最根本的人權觀念，亦即原住民族集體權是否獲得落實？「土地權」、「自治權」、「文化權」等被歸類為集體人權，各國也以落實上述權利內涵為憲政目標，在此背景下，我國也制定憲法增修條文第10條第11項及第12項有關肯定並尊重原住民族發展意願的規定，行政院進一步於2003年通過「原住民族發展法草案」，連同於2005年公布施行之《原住民族基本法》，以及即將送入立法院進行實質審查的《原住民族自治法草案》，目的在實現原住民族集體權。本文嘗試從《雅典憲章》的精神，就原來的山地原住民鄉納入直轄市之後發展問題，論證應配合法制建設腳步，加速文化圈的建立，消解城市與山林傳統上予人的文明鴻溝形象，確保原住民族文化在城市空間中的主體地位。

At the end of June 2009 Ministry of the Interior reviewed applications for direct-controlled municipality status from11 counties and cities. Four applications approved were from Taipei County, Taichung County and Taichung City, Kaohsiung County and Kaohsiung City, and Tainan County and Tainan City. Together with Taipei City, the five direct-controlled municipalities change the existing administrative geography of Taiwan. The most significant feature of counties and cities merging into direct-controlled municipalities is the integration of townships which didn’t belong to each other. Townships like Wulai, Heping, Taoyuan, Maolin and Namaxia get impacted the most because they are aboriginal villages in mountain areas. Direct-controlled municipality gives aborigines the imagination of being city dwellers. But will “city governance” be the ideal model? Or will the forest be aborigines’ ultimate home? These questions involve the most basic concept of human rights-whether collective rights of aborigines are implemented. “Land rights”, “autonomy”, “cultural rights” and so forth are classified as collective human rights, thus many countries consider the above mentioned rights as their constitutional goal. Sections 11 and 12 of article 10 in Additional Articles of the Constitution of the Republic of China (Taiwan) also recognize and respect aboriginal peoples’ will about development. Executive Yuan further passed “Draft Law on the Development of Aboriginal Peoples” in 2003. In 2005 The Indigenous Peoples Basic Law comes into force. Now “Draft Law on Aboriginal Autonomy” is about to be examined by Legislative Yuan. All these aim to achieve collective rights of aboriginal peoples. This paper tries to analyze the problems of aboriginal collective rights which a city could face. Based on the spirit of Athens Charter, this paper argues that the legal system should match the pace of the establishment of “cultural circle” in order to eliminate the image of civilization gap between the city and the mountain. Accordingly, the subjective status of aboriginal culture could be assured in the urban space.