公私協力合作模式建立偏鄉社區互助消防據點之可行性分析-以南投縣魚池、信義、仁愛鄉為例

依據地方制度法與財政收支劃分法，中央政府對於地方的統籌分配款也以縣市人口數為基準，因此長久以來除人口集中，工商業發展較密集發達的六都直轄市之外，同樣受到在人口老化、少子化及人口逐漸外移現象嚴重的農業縣市，則普遍地皆仍存在著自主財政短缺與軟硬體建設遲緩落後的狀況。這當中的南投縣因是台灣唯一不靠海、2/3 土地屬於高山和丘陵，僅能依賴發展農業和觀光旅遊業的縣分。南投縣處於內陸地理位置、高徒地勢分布與地廣人稀等先天條件因素，在加上後天財政上的困難，相對交通不便與生活機能不良的山區，也進一步產生災害防救治上偏遠地區村落長期存在消防據點與效能不足問題。地方政府位除了經費短缺，消防主管單位墨守「一鄉一分隊」舊規，於是無法主動在政策與法令上對此問題找尋或設計出因地制宜的彈性因應機制，最後形成政府對於偏遠地區消防救災職責「治理失能」的負面形象。本研究嘗試從「公私協力合作」理論基礎出發，納入跨域治理與跨部門模式之觀點，聚焦在中央防救災法令制度、中央地方消防體系組織及南投縣魚池鄉、信義鄉與仁愛鄉偏遠地區村落之資源與人力現況，探討運用公私協力模式整合公部門、私部門中的企業、公民與非營利組織資源力量，尋找可資應用於改善及強化這幾個原住民鄉偏遠村落社區消防據點與防救災效能不足問題的方案機制。透過對問題的訪調整理分析，除了希望能對以下三個現有公私協力模式的成立和互動影響關係做進一步理解，同時探討它們在運作後產生問題的可能原因: 一、傳統由公部門消防單位與地方民力志願組織、民間救難團體及國家搜救總隊等長期的協力合作組合運作模式。二、公部門因應經費不足也常邀請接受民間企業、基金會與善心人士贊助添置消防車與救護車等裝備的個案合作方式。三、最近經由研究者親自推動整合公部門、私部門地方企業、村民、村長、民力組織與社團等共同參與協力合作的模式。從以上幾個協力模式的研究分析結果，研究者同樣認為確實在公私協力模式運作上目前仍存在能動者或合作者之間定位不清、擔負業務與權責不明、私部門參與協力意願低落，及如何促進或鼓勵私部門參與協力方案和規範等政策上的發展瓶頸，這些均有待各部門一起重視，並透過溝通、討論，協調加以明確的法制化，方有利於落實各個改善強化公共服務品質及效能協力合作模式的持續及有效運作，讓偏遠村落居民的生命財產與社區安全同樣獲致完善的保障，而這正是研究者以此一命題作研究的最初始與主要的動機。

關鍵字

消防據點；一鄉一分隊；治理失能；公私協力合作；協力方案；公共服務

並列摘要

According to the Local Government Act and the Act Governing the Allocation of Government Revenues and Expenditures, the central governmental overall allocation of local funds is also based on the population of counties and cities. Therefore, except the intensive population, well industrial and commercial development of 6 Municipalities, such as Taipei City, most counties and cities in Taiwan especially to the Agricultural counties and cities, although at the same have been seriously affected by population aging, declining birthrate, and gradual population migration, however the letters are still experiencing shortages of independent finances and slow and backward construction of hardware and software. Among them, Nantou County is the only county in Taiwan that does not rely on the sea and 2/3 of the land belongs to mountains and hills. It can only rely on the development of agriculture and tourism. Nantou County is located in the inland geographical location with high & steep terrain and the sparse population, meanwhile coupled with the financial difficulties, the mountainous areas with relatively inconvenient transportation and poor living functions have further generated villages in remote areas there have been long-standing problems with fire bases and insufficient in disaster preventive efficiency. In addition to the shortage of local government funds, the fire managing unit adhered to the old rules of "one township and one fire brigade ". Therefore, it was unable to actively find policies or laws on this issue or design flexible response mechanisms tailored to local conditions, and finally formed the government's responsibility for fire disaster relief in remote areas negative image of "governance disability". This study attempts to start from the theoretical basis of "public-private cooperation" and incorporate the perspective of cross-domain governance and cross-sector models, focusing on the central disaster prevention and relief law system, the central local fire protection system organization, and remote areas of Yu-Chi Township, Xinyi Township, and Ren-Ai Township in Nantou their current status of the village's resources and manpower, exploring the use of the public-private partnership model to integrate the public and private sector, enterprises, citizens and non-profit organizations' resource forces, and searching for various possible scheme mechanism that can be used to improve and strengthen those less fire base and insufficient fire prevention and relief of communities in remote area. Through the interview survey, analysis & induction against to the problem, the result of research would make us more understanding the undesirable phenomenon and causes among the following exist public-private collaboration modes : 1.The traditional operation mode of long-term collaborative cooperation between the fire department of the public sector and local civil voluntary organizations, civil rescue groups and the National Search and Rescue Corps, 2.The public sector often invites and accepts due to insufficient funds. Private companies, foundations, and charitable individuals sponsored the individual addition of precious fire and ambulance vehicle & equipment needed. In addition, 3.It also an initial success integrating mode throng the collaboration of public sector, private sector, local enterprises, villagers, village chiefs, and communities promoted by researchers and explores that before these collaborative modes can be functioning properly, it still have some policy bottleneckes need to be broked,such as unclear positioning among activists or partners, unknown business division, deputy rights and responsibilities, a low willingness of the private sector to participate in collaborative efforts, and how to promote or encourage the private sector to participate in collaborative projects. Hence, it is still necessary for all departments to keep attention to these issues and make them clearly to be legalization through further communication, discussion and coordination in order to implement the continuous and effective operation of various collaborative & governmental modes that available to improve and strengthen the quality and effectiveness of public services,and eventually the lives and property of the residents of remote villages and the safety of the community can be received well protection equally. And this is the initial and essential motivation of the researcher to study this thesis.