國軍執行救災決策之研究

A Study of Decision Making in Disaster Relief of the ROC Army

尚紘揚(Hung-Yang Shang)

指導教授 ： 宋學文

國立中正大學/社會科學院/戰略暨國際事務研究所/碩士(2013年)

摘要

摘要
近兩個世紀因人類的貪婪肆無忌憚發展工業排放超量二氧化碳及濫砍濫伐，導致地球受溫室效應、暖化及聖嬰現象，致使氣象異常，風（水）災及地震時有所聞，並成為21世紀各國嚴峻挑戰及安全威脅的主要來源。任何地區、國家，無論發生自然或人為災害等，事故(件)一旦發生都有其共通現象就是「形成災難」緊急救災，爾後再依相關資料、情況研判是為自然或人為災害，災情是逐次明朗，尤以日本三一一地震造成「複合式災難」及台灣九二一大地震亦是如此；另外當一個國家之國力面對不安定的情勢或緊急狀況下，無法阻止或處理、甚至於潛在持續惡化之重大變故，其國家軍隊可證明國家有持續(恢復)政府功能運作之能力。這些非戰爭行為之軍事行動包含：災難援助、人道救援協助、環境保護、大規模支援反毒行動、環境許可下的撤僑及維和行動等。
現階段國家安全政策以「預防戰爭、國土防衛、災害防制」為基本目標；另在強化全民防衛理念上，兼顧「國防安全」和「災害防制」考量，積極配合各部會整合，建構完整之處理應變機制，於發生重大危機、事故或緊急災難時，在不影響國軍戰備、不破壞國軍指揮體系、不超過國軍支援能力範圍之原則下，不待命令第一時間投入國軍的人力與資源，依法提供國家社會及人民必要的災難援助支援。觀察國內過去幾次重大災害的救災行動，由於國軍最具多功能組織性、軍紀嚴整的特性，能使救災的行動更快速又有效。然而，921大地震、八掌溪事件及莫拉克颱風(八八水災)等重大災害後，才發現國軍救災因國內救災體系、法制的不完備，使得國軍救災的功能受限，執行決策備受質疑，無法發揮應有的效用；因此，提昇我國軍救災應變制變能力，以符合國防政策基本方針之目標，亦應持續強化國軍執行救災等非軍事行動能力，俾利確保國土安全。
關鍵詞：複合式災難、災難援助、非戰爭行為之軍事行動

關鍵字

非戰爭行為之軍事行動

並列摘要

Over the past few years, the world-wide abnormal weather such as greenhouse effect, global warming and El Nino has caused serious disaster more frequently, for many countries such serious disasters have been the main source of chanllenges and security threats. When the major disasters such as 2011 Tohoku earthquake and tsunami or the 921 earthquake in Taiwan so-called “compound disasters” occur, emergent relief is essential regardless of it is caused by nature or man-made, then gradually clarifing how it caused through relevant information analyzing. In addition, when a country faces the unstable or emergency situations such as “compound disasters” and the government can not prevent or deal with this situation, the steady ability of national army can prove that this country still has the ability to resume the operations of the government. These military operations other than war include disaster relief, humanitarian assistance, environmental protection, large-scale support for anti-drug actions, evacuation and peacekeeping actions.
Nowadays, the main national security policy upholds “war prevention”,” homeland defense”, “disaster prevention" as the basic objectives; Another concept in strengthening civilian-based defense mobilization, it considers both of national security and disaster prevention, cooperating with the ministries actively, aiming at constructing a complete response mechanism in order that immediately provide people with necessary support for disaster relief when major crisis, disaster, accident or emergency occurs, and these military supports must be under the principles such as without affecting the military equipment, military command system, or exceeding the ability of support. Because of versatility and rigorous discipline, military relief makes relief operations more quickly and efficiently over the past several major disaster relief operations. However, lacking of the completeness of the rule of law makes military relief limited in some major disasters such as the 921 Earthquake, Typhoon Morakot, and Pa-chang Creek rescue events. Therefore, enhancing the military disaster response system to meet objectives of the national defense policy, and the army should continue to strengthen capabilities of military operations other than war and disaster relief to ensure homeland security.
Keywords: Compound Disaster, Disaster Relief, Military Operations Other than War

並列關鍵字

Military Operations Other than War

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