- 學位論文
我國區域聯防機制之探討
The Study on the Emergency Management Mutual Aid System of Taiwan
摘要
臺灣地理環境特殊，位於副熱帶季風區，每年5~6月間會有異常梅雨，7~10月間則有頻繁之颱風侵襲，此等特殊氣候，常帶來豪雨，加上地形陡峻，河川短促，經常引發嚴重水災。再者，臺灣位於歐亞大陸板塊與太平洋菲律賓海板塊交界之處，為世界上有感地震最頻仍的地區之一。因此，臺灣地區潛藏之天然災害，可大致分為地震、颱風、水災及坡地災害等四大類；而人為部分則有產業災害、住宅/商業區火災、陸路交通事故及船難等危害類別。一旦災害不幸發生，往往造成生命財產巨大的衝擊與損失，再加上都市化快速發展，環境的脆弱性增加，造成近年來災害頻率與規模都有增大之趨勢。 世界銀行2005年刊行之 Natural Disaster Hotspots - A Global Risk Analysis指出：台灣同時暴露於三項以上天然災害之土地面積為73%，面臨災害威脅之人口亦為73%，均高居世界第一。此外，疫災與重大公共安全事故等潛在威脅亦與日俱增。因此當大規模災害發生，災情遠超過受災縣(市)自有能力或資源所能處置時，鄰近直轄市、縣（市）政府如何相互支援，迅速參與緊急應變，有效整合資源，提昇應變效能，防止災害擴大，乃是減少人命傷亡及財產損失之重要關鍵。 94年訂頒之「直轄市、縣(市)政府災害防救相互支援協定作業規定」，實行迄今已屆滿4年，經綜合檢視近年發生之重大災害，多數仍由中央政府協助救災，地方政府真正落實運用『區域聯防相互支援』機制者鳳毛麟角，顯見運作制度不夠健全。本論文將探討美國及日本災害防救體系中，區域聯防機制之相關法令、運作模式及操作案例等文獻，藉以提出改善建議，期使『區域聯防相互支援』機制更為完備，俾大幅提升縣市政府災害應變能力，有效發揮協調整合功能之目標。
並列摘要
Taiwan has very unique geographical characteristics. Located in a subtropical monsoon region, it is plagued annually by exceptional meiyu (East Asian rainy season) in May and June, and numerous typhoons from July to October. This unique climate often brings torrential rains and, combined with Taiwan’s steep topography and short rivers, frequently triggers severe floods. Moreover, Taiwan lies on the intersection between the Eurasian Plate and the Philippine Sea Plate and is among the areas with the world’s most frequent felt earthquakes. Natural hazards here can roughly be categorized into four types: earthquake, typhoon, flood and hillside disasters; manmade disasters include: industrial disaster, residential/commercial fire, road traffic accident and shipwreck. When disasters strike, they often cause grave impact and tolls in human lives and properties. In recent years, there has been a rising trend in both their frequency and scale due to rapid urbanization and growing environmental vulnerability. According to World Bank’s 2005 publication, Natural Disaster Hotspots - A Global Risk Analysis, Taiwan tops the world in land area simultaneously exposed to three or more natural hazards (73%) and in population under disasters’ threat (73%). Additionally, there has been an increase in potential hazards such as disease outbreaks and severe public safety accidents. Therefore, when large-scaled disasters strike and the impact is beyond what the affected municipalities can or have resources to handle, the key to minimizing death and injuries as well as financial losses becomes how nearby municipalities can offer support, participate rapidly in the emergency response, integrate resources effectively, enhance response effectiveness and prevent the disaster’s spread. The “Operational Compact for Emergency Management Mutual Aid between Municipality and County (/Municipal) Governments” passed in 2005 has now been in effect for four years. Yet, a comprehensive review of recent-years’ severe disaster experiences indicates that the chief rescue and relief responsibilities still fall on the central government; the rare implementation of the above Compact by local authorities exposes the inadequacy of the actual system. Thus, this paper examines literature on relevant ordinances, operating models and case studies in the American and Japanese regional mutual aid systems to emergency management, in order to offer suggestions for improvement towards a more complete regional mutual aid system, a significant upgrade on municipalities’ disaster response capabilities and effective functional integration and collaboration.