我國福利化社區旗艦競爭型計畫發展之區域協力治理分析

我國內政部於民國九十四至九十九年間推動「福利化社區旗艦競爭型計畫」，旨在藉由「聯合/跨社區」方式，讓發展成熟的社區，引領周邊具有潛力社區，提供社區方案推動的經驗，使潛力社區也能得到成長機會，發揮「旗艦領航、艦隊跟上」精神，期能達到「母雞帶小雞」效果，最終得以建立「聯合社區」之區域型福利服務網絡。計畫方案議題多元，涵蓋社區老人與身心障礙者之關懷照顧、送餐、外籍配偶生活適應輔導、弱勢學童課後照顧、社區防災備災宣導通報、兒童青少年保護宣導、家庭暴力與性侵害宣導通報、建構社區防護網、志工培訓等，此一開創性之計畫，為台灣社區營造開啟新的發展途徑。本文採「後設分析」方法，循「區域協力治理」研究途徑，藉由與該計畫相關之研究論文21篇、計畫申請書9份、執行成果報告13篇、訪談資料稿19篇、網站資料，以及其後的電話訪談等資料，重新檢視與詮釋，嘗試使用質性研究途徑的後設分析方法找出其與區域協力治理研究間的理論連結，為學界與實務界未來在區域的福利化社區從事旗艦競爭型計畫的議題上，建立一個對話的基礎。重要研究發現如下：一、社區能力與福利化社區旗艦計畫之推展成效具高度關聯性，亦即參與計畫之社區皆已累積多年社造經驗，深悉推動計畫之相關知能，故能於三年間逐年達成階段目標。二、內政部社區評鑑工作對於福利化社區旗艦計畫之推展成效有其關鍵性作用，蓋參與計畫之社區多數曾經接受縣府與內政部之社區評鑑，其社區組織健全，運作能量足夠，社區凝聚力高等因素，皆裨益其計畫推動與落實。三、「區域協力治理」途徑所揭櫫之「時間」、「信任」與「互賴」等變項，從檢視參與計畫的政府部門、學術團體與社區間，可窺及伴隨論壇功效的發揮，彼此信任與日遽增，互賴程度逐漸加深，終能同心協力、共襄盛舉，如期完成計畫。四、聯繫會報的論壇功能充分彰顯，參與者的意見除了受到尊重，更能捨異求同，化解衝突，增進各造間的信任。五、計畫經理人角色吃重，其功能的發揮，使計畫進度有效掌控，經費配置與使用更形合理，在各社區、政府部門與學術團體間穿針引線，讓各造意見得以有效整合。

關鍵字

社區發展；聯合社區；福利化社區旗艦計畫；區域協力治理

並列摘要

The Ministry of the Interior in Taiwan promoted “Flagship Welfare Community Project” form the year 2005 to 2010. Using the approach of “unified and crosscommunities”, this program, in the spirit of “The flagship leads, the fleet follows”, aims atletting the matured communities lead the surrounding potential communities to grow by providing experiences on community programs promotion, hoping for the effect of “big brother, big sister”, to build the “united communities” of the network of regional welfareand service. The program issues are multi-faceted, including the caring of the elderly and the disabled in the community, food delivery, life adjustment counseling for foreign spouses, after-school program for disadvantaged children, promotion and reporting on prevention and preparation on community disaster, children and teenager protection, as well as domestic violence and sexual abuse, building the network of community protection, and volunteer training. This groundbreaking program developed new approach for community building in Taiwan. This research adopts meta-analysis and follows the research approach of “cooperative regional governance”. By reviewing 21 research papers, nine research program applications, 13 reports on implementation results, 19 interview notes, information from the internet, and the follow-up phone interviews, this research attempts to establish the theoretical relevance between the referenced data and cooperative regional governance through qualitative research, especially meta-analysis, and to establish the basis for dialogues for both the academic and practical fields to communicate on the issue of flagship competitive programs for regional welfare community . The main findings are as follows: 1.The community capability and the promotion effects of welfare community flagship program are highly correlated; that is, communities participating in this program had been accumulating community-building experiences for years, and fully understood the knowledge concerning program promotion. Therefore, they could achieve yearly goals set for each stage during the three-year period. 2.Community evaluation done by the Ministry of the Interior had a crucial impact on the promotional effects of flagship welfare community program. Most participating communities underwent evaluation by the county government and Ministry of the Interior, and have solid community organizations, sufficient operating energy, and high community coherence, which all benefit the promotion and implementation of the program. 3.The approach of “cooperative regional governance” introduces variables including “time”, “trust”, and “interdependence”. From examining the participating governmental agencies, academic groups, and communities, this research found that as the effects of the forums develop, the level of trust and interdependence increases. Therefore, the program was completed on time with full cooperation and collaboration. 4.The function of the forum was fully utilized. In addition to gaining respects on their opinions, the participants seek commonality among differences, resolve conflicts, and increase mutual trust. 5.The program manager plays an important role in ffectively managing the program progress, reasonably allocating and utilizing the budget, and coordinating with all communities, government agencies and academic groups to effectively integrate opinions from different parties.