我國災害防救專責組織剖析

民國98年莫拉克颱風因當時相關政府部會縱向與橫向聯繫不盡理想，導致災害影響甚鉅。有鑑於此，政府便加速推動「災害防救專責組織」之產生，於民國99年2月1日成立災害防救專責單位「行政院災害防救辦公室」作為中央災害防救會報及中央災害防救委員會之幕僚單位，統合跨部會災害防救業務之規劃。同年8月4日修正並通過災害防救法，規定直轄市、縣（市）與鄉（鎮、市）皆須成立災害防救辦公室，為災害防救專責組織之新歷程。　　如今，此有關災害防救專責組織之重大變革已近三年，本研究透過文獻回顧、問卷發放、專家訪談等方式探討分析我國災害防救組織三層級災害防救辦公室營運上之現況與困難。研究發現災害防救法規定廣泛權責劃分不明，且中央災害防救組織角色定位混亂，又災害防救無一套完整從下到上之運作系統，多由消防單位兼辦災害防救業務。另外，直轄市、縣（市）層級災害防救辦公室雖已陸續成立，但礙於經費、組織編制及人員等問題皆以任務編組型式設置；鄉（鎮、市、區）層級災害防救辦公室更受到上述限制僅少數成立，故為了解其成立、實際運作及執行上是否有助於提升災害防救能力，本研究乃提出改善建議，期能提供我國未來強化災害防救專責組織推動之參考。

關鍵字

災害管理；專責組織；災害防救辦公室

並列摘要

Substantial damages were inflicted by Typhoon Morakot in 2009 because vertical and horizontal connections between different government ministries were dissatisfactory. Therefore, the government sped up the establishment of “disaster management juristic organizations.” The Office of Disaster Management, the Executive Yuan was established on February 1st, 2010. This office, as a staff unit of the Central Disaster Prevention and Protection Council and the Central Disaster Prevention and Protection Commission, is responsible for the planning of inter-ministry disaster prevention and mitigation affairs. In the same year （August 4th, 2010）, the Disaster Prevention and Protection Act was instituted. This act, as a new progress of disaster management juristic organizations, rules that offices of disaster management should be established in special municipalities, cities, counties, townships and villages. 　　Three years have passed since the described critical reform of disaster management jurisdic organizations was introduced. This study investigated the current operating status and difficulties of three levels of offices of disaster management using literature reviews, questionnaire surveys, and expert interviews. According to the results, the Disaster Prevention and Protection Act is too vague and does not specify responsibilities of differing organizations. In addition, central disaster prevention and protection organizations do not have clear roles and functions. Integrated operating systems are not available to tasks of disaster prevention and mitigation, most of which have been commissioned to fire departments. Moreover, although offices of disaster management have been established for special municipalities, cities, and counties, these offices are mission-oriented due to limitations of costs, organizations, and staff, and only a few of such offices have been established for townships and villages due to similar limitations. Consequently, to understand whether the establishment, operation, and execution of these offices increase the performance of disaster management, this study provided suggestions for Taiwan to promote and improve disaster management juristic organizations.