旗艦計畫聯合社區推動歷程之研究

論文摘要台灣社區發展工作之政策、理念，受到1994年間文建會提出社區總體營造政策之影響，產生重大轉變；從政策上原本偏重由上而下，基礎工程建設之理念，改變至不僅強調社區的自主性，更期待社區發展協會能逐漸負起滿足社區各層面需求之責任，以達成社區之永續發展。然在歷經十餘年來強調社區自主發展之努力後，臺灣的社區發展工作在許多專家學者眼中，仍有一些需突破的瓶頸。這些發展的瓶頸，有些學者認為其原因係肇始於臺灣之社區範圍大都以單一社區為主，由於單一社區範圍小、資源薄弱，不僅參與不足，且因村里與社區重疊，易造成社區內派系之對立、與鬥爭等問題；為解決單一社區因範圍小所造成之困境，相關專家學者、公部門與民間單位，開始提倡運用「聯合社區」之工作模式來突破台灣社區發展工作所面臨之困境。聯合社區受到重視，係因其具有擴大資源連結、協同運作、充權社區能力，提高參與、及促進社區發展等功能；而內政部為推動福利社區化業務，也自2005年開始實施「福利社區化競爭型旗艦計畫」，鼓勵各縣市政府整合轄內社區，研提具有創新、跨社區（至少5社區）之計畫，期待透過聯合社區來推動旗艦計畫，使新興社區在績優社區的帶領下，共同推動社區之福利工作，並促進新興社區在各項能力上之提昇。為了解旗艦計畫所形成的聯合社區，其協力合作機制之運作內涵與服務成效，本研究運用質性研究之方式，深度訪談參與內政部「福利化社區旗艦競爭型計畫」的兩個聯合社區，合計10位社區幹部及所屬縣市的政府部門人員，透過收集渠等參與旗艦計畫聯合社區之動機、期待，及了解參與推動聯合社區之經驗，以說明推動聯合社區事前需準備之工作、協力歷程，並闡明影響聯合社區運作之助力與阻力因素為何；最後則根據研究發現，針對推動聯合社區協力機制，提出政策上與實務上之建議，以作為後續推動是項工作之參考。整理兩個聯合社區之推動經驗，研究發現顯示，有利聯合社區發展的因素，包括一、在籌備初始階段，1.需辦理相關說明會與觀摩，以讓社區準備參與聯合社區。2.協調具能力與孚眾望的領航者，以整合計畫及協調工作。3.招募具意願與熱誠之協力社區，以組成聯合社區。4.專家的介入輔導，以提供技術支援。5.明確之計畫與願景，以引導工作方向。二、在實際運作階段，有利聯合社區發展的因素，包括：1.應建立公開、透明、互信的組織化運作，以凝聚共識。2.開明的協同領導模式，以促進和諧。3.細緻的業務分工與緊密的合作，以完成協力之目標。4.專案經理人的付出與投入，以推動業務。5.公部門提供支持與挹注資源，以彌補不足。至於旗艦計畫聯合社區推動的阻力，包括：1.在經費上：經費補助不足、核撥較晚、且核銷程序繁瑣，使社區備感壓力。2.在參與上：社區幹部年齡偏高、參與僅限少數幹部、使經驗傳承不易。3.在人才上：社區在地人才的培育不足，使人才斷層。4.在業務上：社區執行之方案太過多樣化，分散社區人力與專注力。5.在資源上：資源籌措不易，使聯合社區之持續性不足。綜上，為建立有助於聯合社區發展之機制，對中央政府之建議為，1.建議提升經費補助比例與撥款速度、以減輕社區負擔；2.加強以聯合社區推動旗艦計畫之宣導、以利福利社區化之推動。對地方政府之建議為1.成立社區能力專責培力中心，主責社區之輔導與培力工作。2.重視社區需求、傾聽社區之聲音、鼓勵社區自主提案；3.基層公所應加強社區工作相關專業知能；4.縣市政府應適度的授權，讓公所擁有經費、資源之主導權；5.縣市政府應積極整合社區提案，以提升新興社區之能力等。對社區之建議為1.重視社區人才的培育以傳承知識、經驗，促進社區永續發展；2.擴大居民參與、強化資源網絡之建構與連結；3.慎選協力社區，並強調社區輪流提案機制；4.運用協力之基礎、促成結盟的延續。

關鍵字

旗艦計畫；聯合社區；協力關係；領航社區；新興社區；社區能力

並列摘要

Abstract The policies and beliefs of community development in Taiwan underwent significant changes after being affected by the Comprehensive Community Building Policy proposed by the Council of Cultural Affairs.The policy went from the concepts of building fundamental engineering projects with a top down wards angle to stressing the independency of communities and anticipating the community building associations to take the responsibility of fulfilling the community’s needs of all levels in order to achieve sustainable development of the community .However after more than a decade of putting effort into independent community building, it appears to many experts that there still exist several bottlenecks in Taiwanese community building projects. Some scholars consider the necks in community building resulted from the Taiwanese definition of a community as one small single area,which can lack resources and participation, and can also be overlapping in areas with other administrative areas like villages and districts, leading to confronting positions and struggles between different parties . In order to solve the problems related to single communities with small areas , experts , scholars , public organizations and civil organizations have been promoting the working concept of “coalitive community”to bring further developments in Taiwanese community building. Coalitive community are valued as they join resources of communities and function as a whole , bringing up the abilities which can lie beyond the communities and raising participation , enhancing the communities’ development. The Ministry of Interior implemented the “Competitive Flagship Project for Community Welfare”to encourage local governments to integrate their respective local communities, propose innovated cross - community projects involving at least five communities, aiming to have coalitive community promote the flagship projects and lead newly built communities into promoting community welfares together and help enhancing newly built communities’ abilities of all aspects. To understand the cooperative functioning and achievements of the coalitive community formed by the flagship projects , this research is conducted with qualitative research and interviewed in dept two coalitive community which participated in the Ministry of Interior’s Competitive Flagship Project for Community Welfare”, a total of ten community officials and government officials of related cities of counties.The motivation and anticipation of participating in the flagship project and the experiences of taking part in promoting coalitive community were examined to find the explanation of the preparations and cooperating process of promoting coalitive community and understanding the helping and negative forces of having a coalitive community in function. Finally based on the findings, the research aims to offer advice on policy and actual affairs as a reference of future promotion works for the project. After examining the promoting experiences of the two coalitive community,results reveal that (I) positive elements of coalitive community developments during the preparation and starting stages are: 1. Conduct orientations and inspections to prepare the community for participation in coalitive community. 2. Arrange for an able and respected leader to lead the coordinating tasks of the project.3.Invite willing and enthusiastic cooperating communities to form the coalitive community. 4. Insert experts’ guidance to offer technical support. 5. Make clear plans and coals to lead the works. (II) The positive elements during actual execution of the project include: 1. Build a public, transparent and trusted organization to gather common views.2. Have a liberal union leadership to promote harmony. 3. Divide tasks in detail to effectively complete coals. 4. Have project managers to promote affairs. 5. Have public organizations offer resources when they are insufficient. The negative forces for coalitive community promotion include:1. Funding: Insufficient funds,late funding and complicated governmental funding procedures can cast pressure on communities. 2. Participation : The participants are of an older age group and only a few officials are participating. It is difficult to pass on the experience. 3. Talents: The community did not raise enough talents for required tasks. 4. Affairs : A variety of events are taking place and manpower and focus are divided . 5 . Resources : It is hard to gather enough resources to keep the project running for a long time. From the above findings , to build a system which effectively helps the development of coalitive community , the advice to the central government are as follows: 1. Raise the rate of subsidy funds and issue funds more quickly to remove pressure on the communities. 2. Strengthen the guidance of promoting flagship projects with coalitive community for better promotion of community welfare. The advice to local governments are as follows: 1. Establish community professional ability training centers and take responsibility on counselling and labor training in the community. 2. Value the community's needs, listen to the people's voices and encourage active proposals from the community.3. Increase community works related knowledge in fundamental local government organizations. 4.Prefectural and city governments should authorize local government organizations so they have access to funds and resources.5.Prefectural and city governments should actively integrate propositions from communities to raise overall abilities of newly built communities . The advice to communities are as follows :1 . Value the raising of talents in the community to pass on the knowledge and experiences to achieve sustainable development of the community.2.Raise local participation and strengthen the structure and access of the resource network.3.Carefully select the cooperating ommunities and stress on the mechanism of communities making propositions in turns.4. Excise the fundamentals of cooperation and create long-lasting relations.