長距離步道的推動涉及跨行政邊界、跨層級與跨部門的多元行動者協作，其治理複雜性難以由單一機關管理模式加以解釋。既有文獻雖已關注步道的環境衝擊、使用者行為與觀光效益，但對於治理網絡如何在長期推動歷程中形成與演化，以及由下而上的民間倡議如何驅動制度化的跨域協作，仍缺乏系統性的縱向分析。此一研究缺口在臺灣尤為明顯：多數跨域倡議案例往往止於地方實踐，能夠完成制度化躍升並進入國家政策體系者極為少見。
本研究以山海圳國家綠道（2007–2025）為個案，採歷程導向的質性個案研究法，整合會議紀錄、政策文件、計畫報告、民間出版資料，並輔以對關鍵行動者的深度訪談與田野參與觀察。研究架構以兩個核心問題為起點：第一，治理網絡如何在不同推動階段中形成與演化；第二，主要行動者如何被納入治理過程，其功能角色又如何隨結構調整而改變。理論上援引Provan與Kenis（2008）三種網絡治理模式辨識各階段組織型態，以Lowndes與Skelcher（1998）夥伴關係生命週期模型劃定階段邊界，並結合Klijn與Koppenjan（2015）治理複雜性三類型框架與Cerveny等人（2020）六項步道合作夥伴角色，分析行動者的功能分工與跨階段演化。
山海圳治理網絡的形成，係民間倡議者對關鍵政策時機的策略性掌握、跨場域行動者網絡的持續連結，以及民間組織的政策轉譯能力共同作用的結果。在行動者關係上，本研究發現不同類型的行動者，像是政府機關、民間組織、規劃設計業者等單位，透過正式平台機制、非正式信任網絡與路線空間認同等不同方式，被逐步連結並整合進治理網絡之中。步道倡議非營利組織在推動歷程中逐步疊加步道倡議者、社區連結者、土地協調者與溝通者等多重角色，並實質承擔起平台秘書處的協調工作；社區大學地方分校則始終維持步道倡議者與步道監督者的雙重角色，兩者共同深化了公共治理中的社會參與程度。山海圳的推動歷程不僅為公部門提供跨域協作的制度參照，更為有意推動政策倡議的地方團體或非營利組織，提供了一個由下而上的民間行動得以完成制度化躍升的具體參考案例。

This study looks at how a governance network formed around Taiwan's Mountains to Sea National Greenway from 2007 to 2025. It explores how a local civic initiative grew into a national, cross-sector governance system. The study uses a qualitative case study method. Data come from platform meeting records, policy documents, interviews with eight key people, and field observation. The analysis follows four stages of network development, based on the frameworks of Provan and Kenis (2008), Lowndes and Skelcher (1998), Klijn and Koppenjan (2015), and Cerveny et al. (2020).
The findings show that the governance network formed through several factors: civic actors seizing key policy opportunities, ongoing cross-sector relationships, and the ability of civic groups to turn local ideas into public policy. Different actors — government agencies, civic groups, and design firms were linked through formal platforms, informal trust, and a shared identity tied to the trail route. Over time, the Taiwan Thousand Miles Trail Association took on several roles at once, including trail advocate, community connector, land coordinator, and communicator, and it also ran the platform's day-to-day coordination work. The Taijiang Community College kept a dual role as advocate and watchdog throughout the process.
This study adds to governance network research by offering a real-world example of how a bottom-up civic initiative can become part of a national governance system. It also offers useful lessons for nonprofits and local groups working on cross-sector collaboration and long-distance trail projects

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