發展生態旅遊產業的三個法寶：政策、認證與特許（中英對照）

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《GREEN綠雜誌》2015年4月號刊出我在去年11月考察澳洲生態旅遊的心得：「發展生態旅遊產業的三個法寶：政策、認證與特許」，我將文章內容放在這裡，希望這樣的心得能分享給更多的同好，也希望臺灣的生態旅遊產業可以很快朝這個方向進展。

政策、認證與特許是發展生態旅遊的三個法寶 

Ecotourism In Australia：Perspectives in Policy, Certification and Special Permissions

國際上生態旅遊從觀念發想到實踐，剛好半世紀，從最初的單純以環境保育為出發點，到現今大家賦予不同的任務與理想，定義可謂五花八門。生態旅遊最早於西元1965年由美國學者Nicolas Hetzer博士創造出「Eco-tourism」一詞，解釋遊客、環境與文化三者互動的內在關係，並提出：（1）最小的環境衝擊、（2）尊重在地文化與最小的衝擊、（3）帶給當地最大的經濟效益及（4）帶給遊客最佳的遊憩體驗等四項準則，期盼能藉此概念的推廣，使旅遊活動對環境更加負責任。

隨著時代變遷，生態旅遊意涵愈來愈廣，亞太觀光協會（PATA）定義生態旅遊為「生態旅遊應以珍視、欣賞、參與及敏感的態度與精神，造訪一個相當未開發的地區，並且不消耗任何野生或自然資源。同時克盡一己之力，對該地區的各種保育活動和特殊的地方性需求有所貢獻。」澳洲生態旅遊協會（EA）則定義生態旅遊為「在可以促進遊客對旅遊地環境及文化的領會、欣賞及保護的自然區域進行永續生態的旅遊活動。」而目前被廣為引用的生態旅遊定義是國際生態旅遊協會（TIES）提出的：「生態旅遊是在自然地區負責任的旅行，顧及環境保育，並促進地方居民的福祉。」從這些定義可以看出生態旅遊是以環境（人文與自然）、社會（族群與社區）、經濟（在地與永續）為三大核心所進行的旅遊營業或體驗方式。

生態旅遊與一般大眾觀光最大不同點就是生態旅遊具有高度的理想性，希望透過保育生態資源、創造經濟利益及深化遊客體驗的平衡發展來達到旅遊地永續經營的整體效益，以及人與環境共生共榮的願景。這也是無論怎麼定義生態旅遊，其基本的理念還是應該在操作時被緊緊的抓牢，時時檢視，以符合生態旅遊的訴求。

澳洲共有19處經聯合國教科文組織認定的世界遺產，包括地球上最古老的雨林，以及總面積達全世界總量三分之一的海洋生態保護區，目前是全球生態旅遊產業最發達的國家，在相關的學術研究、法令規章、產業模式、行銷宣傳上一直都是國際翹楚，政府與民間團體合作推動的情形也是世界範例。而昆士蘭州（Queensland），位於澳洲的東北部，面積為澳洲第二大州，人口排名全澳第三，境內有五處世界自然遺產保護區（Fraser Island、Gondwana Rainforests、Great Barrier Reef、Riversleigh、Wet Tropics），其中名聞遐邇的大堡礁就在其轄內。除了海洋資源，昆士蘭森林資源也非常豐富，生物多樣性高，地貌變化多，地質演化證據處處可見，因此昆士蘭州也是澳洲生態旅遊的熱區。

There are 19 sites in Australia listed in the UNESCO World Heritage list, including the oldest rainforests on the Earth. In addition Australia has about one-third of the total marine reserves in the world. Some say, Australia is the most developed eco-tourism country around the world up to dated. 

Australia’s government works closely with NGO’s to deliver some of the best eco academic research, laws, regulations, and industry practices in the world. This partnership has put Australia as a world leader in ecotourism.

Queensland – is located in the northeast of the country, it is the second largest state in Australia by area and the third largest by population. Queensland has five areas recognized on the World Heritage Register for their outstanding ecological sites (Fraser Island, Gondwana Rainforests, Great Barrier Reef, Riversleigh, and Wet Tropics). Among those, the Great Barrier Reef probably the most famous one.

Queensland is rich in biodiversity, rain forests to marine sanctuaries. The landscape shows evidence of geological evolution the area has experienced through the millennia; thus Queensland is the number one eco-tourism destination in Australia. 

無論是澳大利亞政府或是昆士蘭州政府，都把生態旅遊當成重大產業在推動，而其成效也很卓著，其獨步全球的成功之道，應該是徹底掌握並執行了政策、認證與特許這三大法寶，才有今天這樣的成果。我們就以昆士蘭州政府以政策引導產業發展、民間發展認證系統、政府給予優質業者特權促成生態旅遊的快速發展，來作為台灣推動生態旅遊的參考。

The Australian Government and Queensland state government view ecotourism as a competitive advantage over other tourist destinations. As a result the government has worked with NGOs to implement an ecotourism policy, eco-certificate and special eco permit programs that foster the growth of ecotourism industry. This not only attracts business but protects the ecological wonders in Queensland.

This program is an excellent example for the Taiwan Ecotourism development.

政策宣示 方向明確  Policy statements and clear directions
每一個政府在推動一項措施前，當然根據的是政策方向。有明確的政策方向，才能擬定策略方針與行動計畫，繼而按部就班逐步施行以達目標。

澳洲第一個擬定生態旅遊發展計畫的州政府就是昆士蘭，在1997年發布第一版「昆士蘭生態旅遊發展策略及行動方案」（Queensland Ecotourism Plan），接著有2003-2008的第二版及2013-2020的第三版，有目標與期程來設定各項操作準則、實施標章認證、進行市場調查、推出行銷活動，並強化生態旅遊中的原住民文化元素。

Australia’s first draft of the eco-tourism development program was by the Queensland state government, this was published in 1997 and titled the “Queensland ecotourism development strategy and action plan” (Queensland Ecotourism Plan). Followed by a second version in 2003-2008 and third version in 2013 -2020. The eco-tourism development program document outlines the goals and action plans for implementation of the certification certification, conducting certificationeting assessments, launching certificationeting campaigns, and plans on how to strengthen the indigenous elements in ecotourism.

在第一版推出後十年間，昆士蘭擁有全澳超過一半的生態標章產品，並且帶動澳洲與全世界發展出創新的生態旅宿及生態遊程，可見政策確實發揮了引導市場的力量。

Ten years after the first version was launched, Queensland is home to more than half of Australia’s eco certified products which drives the innovation of eco-accommodations and eco-tours in Australia and the world. Obviously, this policy shows its power in leading the development of the ecotourism certificationet.

再以第三版「昆士蘭生態旅遊發展策略及行動方案」為例，它先敘述發展生態旅遊的重要性，接著談昆士蘭生態旅遊的機會與挑戰，並提出發展生態旅遊的願景：昆士蘭是澳洲第一名生態旅遊地，同時是世界領導品牌，提供以自然為基礎的最佳旅遊體驗，並維護自然資源及文化遺產，強化旅遊業、政府、社區及傳統領域地主之夥伴關係，接著是策略方針，最後提出6個月、12個月、2年及3年的行動方案，並且指定負責推動的單位，依序進展。許多都很具體，是確實可行的計畫，而不是喊口號。而這計畫也看出昆士蘭政府的企圖心，由這企圖心再來談如何做，強度就不會弱了。這裡面有昆士蘭觀光旅遊相關統計資料，也有許多對發展生態旅遊的想法與做法，雖然有些看起來也是滿大眾旅遊訴求的，但基本上是一份很值得參考、借鏡及學習的資料。

Furthermore, the 3rd edition of “Queensland ecotourism development strategy and action plan”, describes the importances of eco-tourism development. This document spells out the opportunities and challenges for eco-tourism in Queensland starting from the vision and how setting strategic priorities develop ecotourism in Queensland.

The vision; Queensland is Australia’s number one ecotourism destination and recognized as a world leader in ecotourism, delivering the best nature-based experiences which contributes to the conservation of our natural resources and cultural heritage.

Followed by a list of strategic priority and action plans for the next 6 months, 12 months, 2 years and 3 years, spelling out the responsible organization for each step. So the program has specific plans, rather than just a slogan.

In the plan, one can see the Queensland Government’s ambition for the ecotourism certificationet and explains how to reach these ambitious targets, which shows the strong commitment and confidence the government has in its resources. Also, the report provides statistics for Queensland tourism, including ideas and practices on the development of eco-tourism. Indeed; it is really excellent material for reference, learning and study.

標章認證 引領標竿  Certification Leading Benchcertificationing

澳洲生態旅遊協會（Ecotourism Australia）於1996年推出全世界第一套生態旅遊認證系統，澳洲政府也納為推動觀光發展，提升業界水準的配套措施，例如納入「國家地景自然產品標誌」的自動認可機制，只要獲有生態旅遊標章系統的任一標章，自動符合該標誌準則的前二條規定，而獲有進階級生態旅遊標章者，則自動符合所有準則。另外，「生態旅遊標章」與「進階生態旅遊標章」也獲得全球永續旅遊推動聯盟（Global Sustainable Tourism Council）認可的永續旅遊相關標章之一，可以自動掛上該聯盟的標誌。

Ecotourism Australia launched the world’s first ecotourism certification system in 1996; the Australian Government adopted the system for driving the tourism certificationet growth and elevates tourism industry standards. For example: including an automatic recognition mechanism for “National Nature-base landscape products Certification” – as long as the operator received any of the Eco Certification from ecotourism certification system will immediately comply with the former two provisions of that product Certification when they applied. Those operators who are granted the Advanced Ecotourism Certification will immediately comply with all the criteria from that product certification.

The Certifiications“Ecotourism “and “Advanced Ecotourism” have recognized by the Global Sustainable Tourism Council (GSTC) as sustainable tourism related Certification, one who has such ecotourism certification can also post the symbol from the GSTC.

生態旅遊不是消耗自然生態讓業者賺錢的護身符，反而應該以嚴謹的規範來審視操作過程是否符合生態保育、環境保護、環境教育及社區福祉等要素，而非只拿生態當招客賣點，拿生物當娛客玩具。標章認證的功能在於提供業界一個可以遵循用以提升服務品質並符合生態旅遊理念的標準，同時作為遊客選擇業者的重要參考依據。這些標章現在成為澳洲生態旅遊業者行銷利器，在業者的網站、單張、摺頁等各式行銷媒體上都會秀出生態旅遊標章，一方面顯示其為友善環境且是經過認證的生態旅遊業者，以招來認同理念的旅客，一方面也提升企業形象，加持長期的行銷效果，尤其在國際行銷上更具吸引力與公信力。甚至有銀行因為業者獲有生態標章容易行銷，獲利能力較好而願意提高借貸成數。

Certification systems provide the industry a process to improve service quality by meeting standards of eco-tourism program, at the same time; these serve as the important bases for travelers to select operators that meet standards which are consistent and recognized to provide experiences which sustain the ecology. It has become a certificationeting tool for eco-tourism operators in Australia. By showing Ecotourism Certification on the operator website, leaflets, brochure, and other types of certificationeting media proving its environment friendliness; and also as a certified eco-tourism operator, in order to attract travelers who have the value the same qualites.

On the other hand, by promoting the corporate image, blessing the long-term certificationeting results this will increase the attractiveness and credibility in the international certificationeting.

Even banks are willing to provide more collateral in the form of loans to certified operators.

在澳洲國家旅遊獎得主中，24％是澳洲生態旅遊協會生態標章的業者會員，可見生態標章確有引領業界標竿的作用。

24% of the National Tourism Award winners in Australia are operating with the Eco Certification from Ecotourism Australia, this shows that the Eco Certification plays an important role in benchcertificationing tourism operators. 

該生態標章共有4大類8種標章，計為：

The certification including 4 categories with 8 certify certification.

一、生態認證（ECO Certification）：分為「進階生態旅遊」（ADVANCED ECOTOURISM）、「生態旅遊」（ECOTOURISM）及「自然旅遊」（NATURE TOURISM）三種層級的標章。

Eco Certification: divided into (ADVANCED ECOTOURISM), (ECOTOURISM) and (NATURE TOURISM) three tiers of the certification.

二、氣候行動認證（Climate Action Certification）：分成「氣候行動領袖」（CLIMATE ACTION LEADER）、「氣候行動創新者」（CLIMATE ACTION INNOVATOR）及「氣候行動企業」（CLIMATE ACTION BUSINESS）三種層級的標章。

Climate Action Certification: divided into “Climate Action Leader”, “Climate Action Innovator” and “Climate Action Enterprise” three tiers of the certification.

三、尊重在地文化認證（Respecting Our Culture）：標示業者是以專業且永續的方式讓遊客的體驗符合其期待，同時鼓勵業者尊重原住民文化遺產。

Respecting Our Culture certification (Respecting Our Culture): labeling the operator’s process in professional and sustainable that leads the visitor experience in line with their expectations, while encouraging the operator to respect indigenous cultural heritage.

四、生態導遊認證（EcoGuide）：針對個別導遊認證，涵蓋一般導遊技巧及生態導遊應具備對環境影響最小的知能。

Eco Guide certification: targeting the individual guide, covering general guidance skills and the ecological tour guides should have the knowledge and ability to minimize the impact on the environment.

特許保障 鼓勵優者  Encourage excellent in concession guarantee

澳洲政府及昆士蘭州政府以相當開放且支持的態度發展生態旅遊產業，相關單位與澳洲生態旅遊協會長期合作，互動頻繁，在許多生態旅遊推廣行銷及業務管理上都有夥伴關係。而藉著澳洲生態旅遊協會當平台，對表現良好的業者（如獲有生態認證的標章）會給予某些特權，例如特許帶團進入國家公園或保護區的特別景觀管制範圍、延長特許期限、政府公關接待優先推薦的業者等，這樣一方面讓自然資源可以服務人類，一方面又可有效管理不致有破壞環境之虞，對業者參與生態旅遊也是一種鼓勵。

The Australian and the Queensland governments have been open and supportive to the development of eco-tourism industry. They see the growth in these certified industries as beneficial to the environment and economies. Government departments have long term relationships with Ecotourism Australia in many areas and interact frequently on promotion and certificationeting the business, just like a partnership.

Ecotourism Australia’s platform grants recognition for excellent performance to Eco certified operators, such as: charter tour operations to a special zone within national parks or reserves, extend the expiration dates, Government public relations prioritize recommended operators and, so on.
Thus, natural resources can be a serve humanity, and benefit from effective management that prevents damage to the environment, is also a way to encourage the operators participate in eco-tourism industry

最明顯的案例如Undara火山國家公園有世界上數一數二長度的熔岩流地質，是19萬年前一座火山噴發大量熔岩後形成的，部分區域形成壯觀的熔岩洞，雖然景觀特殊但若無人引領而放任遊客進入，很容易有危險或是破壞地景的事情發生。而部分岩洞棲有大量蝙蝠，更不能讓遊客隨意進入干擾蝙蝠生態，因此Undara火山國家公園管理局就特許二家度假村及一家旅行社可以帶領遊客進入，其他的業者就不行，在Undara火山國家公園網頁除秀出特許帶導覽解說的業者名單，也顯示其獲有認證的標章，供遊客選擇。 

Visual cases such as Undara Volcanoes National Park, one of the longest lava flows in the world, formed about 190,000 years ago during a volcanic eruption. Some parts of the formation such as: the lava cave, the spectacular landscape, it is likely to be dangerous for visitors if there is no control. In addition some of the caves have large bat populations inside, permitting allows for the protection of the bats and maintaining their ecology. So Undara Volcanic National Park Authority franchise two resorts and a travel agency to lead tourists through the caves. The Undara Volcanic National Park website lists those franchises with certifications for visitors to choice. 

另外，如在Mareeba濕地保護區（Mareeba Tropical Savanna and Wetland Reserve Nature Refuge）及Rose Gums自然保護區（Rose Gums Nature Refuge），都特許獲有澳洲生態旅遊協會認證生態標章的度假村業者在保護區內營業。

Additionally, the Mareeba Tropical Savanna, Wetland Reserve Nature Refuge, and Rose Gums Nature Refuge are granted special permits for operation as a Eco-certification resort within the protection zone from Ecotourism Australia.

在Undara火山國家公園網頁上顯示特許帶導覽解說的旅遊業者 

澳洲生態旅遊推動已有25年之久，產業鏈結合及實務操作成熟，生態旅遊已經是旅遊業的主流市場與行銷重點，雖然少數景點與大眾旅遊形態相去無多，「漂綠」也是常見的業界手法，但因為澳洲地廣人稀，交通多為長途行車，且非都市區的旅宿規模都不大，自然形成總量限制，對絕大多數的自然地區而言，生態與經濟還是可以共生共榮的（垂死的大堡礁除外）。尤其昆士蘭洲在州政府的政策宣示與引導下，妥善運用鼓勵標章認證及特許授權以營造業者有利、環境受益的二種政策工具，積極協助業者改善經營環境、提升服務品質且創造生態旅遊效益。

反觀台灣從2002年推動生態旅遊以來也有13年了，可是長期來政府政策不理、大眾觀念不進、產業環境不全、操作實務不彰，尤其旅行社真能操作正確生態旅遊的沒有幾家，政府對想投入生態旅遊業者的支持也沒有對大眾旅遊市場的促銷那麼慷慨，使得台灣生態旅遊產業規模一直無法建立起來，沒能形成對環境、對經濟、對社區、對業者、對政府、對遊客多贏的局面，這真是需要政府與民間業者（含社區）全面且積極的改善。澳洲政府所用的政策、認證與特許三項法寶，或許是台灣若要有效發展生態旅遊而可以參考採取的方法。

 （註：我說「政府政策不理」指的是行政院）

延伸閱讀：

澳洲昆士蘭生態旅遊考察簡要心得—資源面、政策面、組織面、操作面概述

本部落格「澳洲系列」、「生態旅遊或觀光遊憩」、「旅遊地經營管理」專欄各文

底下是綠雜誌刊登的內容： 

2015年4月《GREEN綠雜誌》封面