易致災都市空間發展之探討：以臺北盆地都市水災形成為例

Exploring Flooding Vulnerability during Urban Developing Process: Learning from the Formation of Taipei Basin Floods

陳亮全(Liang-Chun Chen) ； 陳海立(Hai-Li Chen)

《都市與計劃》 34卷3期 (2007/09) Pp. 293-315

https://doi.org/10.6128/CP.34.3.293

摘要

近年來國土空間的規劃逐漸受到重視，而其中「安全防災」更是新興的重要議題。都市計畫雖為其中之一環，但在災害防治議題上，仍甚少涉及「防災、減災」的課題，而多著眼於應變救災之需求，特別是為確保地震發生後緊急救災避難的功能。對於水災防治方面，在計畫層次上亦甚少涉及，但僅採取風險迴避手法或仍依賴工程的風險抑制。然而從近來水災災害損失逐漸升高的趨勢觀之，實有檢討都市計畫如何強化水災防治工作之必要。
有別於國內大多就法令規章或災害潛勢模擬來檢討空間規劃與水災防救關係的研究取向，本研究以臺北盆地都市發展歷程與水災事件作為探討對象，針對都市水災的變化及其易致災性進行分析，從而提出都市計畫在都市水災防治工作上應具備的功能之建議，期能對日後研擬國土空間規劃相關作業有所助益。
本研究發現由於都市發展改變土地使用、都市排洪能力、產業結構、建築形態與空間資本密度等，並形成水災的「易致災性」，進而提高都市水災發生的可能性、擴大水災的損失規模。因此，建議都市計畫應提升緩和災害強度、強化都市災害處理能力，以及增加災害承載量等三項功能，將可有效抑制都市環境中的易致災性，並減少災害可能造成的危害。最後，本研究認為有關災害的管制手段與公共建設終究有其強度與規模上的限度，唯有從根本促使空間規劃在防減救議題上有所作為，方能抑制災害可能造成的危害。

關鍵字

都市發展 ； 易致災性 ； 都市水災

並列摘要

Urban planning functions serve as an integral part of the entire spatial planning system, which is considered important in Taiwan, particularly in relation to the issues of disaster management. However, most of these discussions have focused on emergency response, which examine whether an urban area can maintain services whiling an earthquake striking. In contrast, flood studies generally utilize risk avoidance and risk control as their main strategies, and rely on how to control damage by use of hardware. Therefore, our research's aims are to discuss the function of urban planning in hazard management by clarifying flooding vulnerable space.
This study examined whether urban development causing floods through 26 major flood events in Taipei Basin rather than through regulatory reviews or scenario testings. The study then analyzed flooding vulnerability and discussed the function of urban planning in disaster management. Urban planning is found capable of relieving an impact of hazard, strengthening energy for emergency respond and improving capability of urban environment to withstand hazard. Additionally, all measures or facilities eventually have limits. The authors suggest that urban planning, as a hazard mitigation tool, should be applied for hazard reduction more than hazard prevention and emergency response. Furthermore, vulnerability should be widely analyzed and carefully suppressed via urban planning to minimize damage loss.

並列關鍵字

Urban development ； Vulnerability ； Urban flood

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