提升地方政府鄉鎮市層級防救能力之研究-以新竹縣竹北市、竹東鎮、五峰鄉為例

The research for improving disaster prevention and protection ability of the local authority and township (city) - take Zhu Bei City, Chutung Town and Wufong Township for example

戴荏國(Jen-kuo Tai)

指導教授 ： 唐治平 ； 李維森

國立中央大學/工學院/土木工程學系碩士在職專班/碩士(2011年)

摘要

臺灣特殊環境條件下面臨的天然危害種類繁多，尤其近數十年來在人口數量、土地開發與使用強度等社會環境與生活型態巨大轉變下，整體社會的易致災性與風險也不斷向上攀升，加上全球氣候變遷日益顯著，災害所帶來的衝擊可能較往昔更為巨大。根據研究指出，台灣暴露於三種天然災害之人口與面積比例均為73﹪；暴露於兩種天然災害之人口與面積比例為90﹪～95﹪，皆為世界之冠，可見台灣為高災害潛勢地區，我們沒有重視防災防救的理由。
依據依災害防救法第20條，地方政府應依上級災害防救計畫與地區災害潛勢特性擬定地區災害防救計畫，經各該災害防救會報核定後實施，並報上級災害防救會報備查。早先透過「協助直轄市、縣（市）政府強化災害防救計畫三年中程計畫」的推動與實踐，除有效結合產官學界共同合作，將災害防救科研成果落實應用於基層防救業務工作，也大幅提昇了我國整體災害防救能力。雖各直轄市、縣（市）地區災害防救計畫已修訂到更具體可行，然而欠缺足夠素養與能力之災害防救專業、專職人員與專責單位，進行相關防救工作的協調、整合、督導與落實，使得該地區災害防救計畫之實踐仍屬不易。同時就災害防救法而言，地區災害防救工作並非僅直轄市、縣（市）政府，鄉（鎮、市、區）公所亦有職責，整體政府3級制防救體系中最基層的鄉（鎮、市）公所，就3年中程計畫推動期間，各地協力機構於協助各地方政府所進行的相關調查顯示，其技術、經驗、人力與各方面資源都相對貧乏，加上過去各地縣（市）級政府相關作業能力與機制未臻健全下，以致對於鄉（鎮、市）公所的災害防救任務與執行能力，或地區災害防救計畫研擬與操作情形，並未多加予以輔導與協助強化，使國內各地災害防救工作職責仍多偏重於中央與直轄市、縣（市）政府，鄉（鎮、市）公所主動積極參與或主導相關工作之意識仍薄弱，行動力更顯不足，這使得災害的第一時間的防（搶）救多數不易遂行，仍須仰賴上級政府機關的協助與事後馳援。故希望透過實地訪視及文獻資料做比較探討，期盼能夠找出相關缺點及問題所在，檢討其運作方式，提供政策建議，以強化鄉鎮市層級的防救災能力，發揮功能。

關鍵字

防救災體系 ； 鄉鎮市災害防救任務與執行能力 ； 地區災害防救計畫

並列摘要

There are many types of natural disaster in the distinctive environment of Taiwan. Especially, under the tremendous transition of life style and social circumstance in population, land development and use intensity for decades, the society for vulnerability of disaster risk is on the increase obviously with globe climate change which is considerably different day by day. Compared with the impact in the past time, the impact which a disaster brings nowadays probably causes a greater effect. According to the research, the proportion of population and land area of three natural disasters that happened in Taiwan is 73%, and the proportion of population and land area of two natural disasters that happened in Taiwan is 90%~95%, both proportions are first ranking in the world. Therefore, Taiwan is high disaster potential analysis region; it goes without saying that we have to emphasize the important of disaster of prevention and protection.
According to Article 20 of Disaster Prevention and Protection Act, the executive units of municipal, or county(city) disaster prevention and protection council shall draw up regional prevention and protection plan according to the Disaster Prevention and Protection Basic Plan, related disaster prevention and protection operation plans and potential characteristics of regional disasters, seek the authorization from respective disaster prevention and protection councils for implementation and report to the Central Disaster Prevention and Protection Council for reference. Formerly, through the promotion and implement of assisting the municipal, or county/city government to enhance middle disaster prevention and protection plan for three years; moreover, the alliance and cooperation of government, enterprise and higher educations, local government not only applies the work of disaster prevention and protection technology to the primary disaster prevention and protection business, but also raises our disaster prevention and protection ability obviously. The municipal, or county/city regional plan of disaster prevention and protection have been amended to be specific and feasible. However, it is not easy for local government to implement regional disaster prevention and protection result from insufficient disaster prevention and protection specialty, staff and unit of literacy and competence to coordinate, integrate, supervise, and implement related items of disaster prevention and protection. At the same time, as far as Disaster Prevention and Protection Act is concerned, not only the municipal government, or county (city) governments but also township (city) office in disaster prevention and protection system is in charge of disaster prevention procedures, and the investigation shows that the instituion which assist the local government is lack of techniques, experiment and human resource in any aspect relatively. In addition, the competence and mechanism of municipal government in the past is under-performed situation, so that municipal government , county (city) doesn’t consult and enhance township (city) office about the disaster prevention mission and implementation or regional disaster prevention plan draft and execution . Hence, the central regulating authorities, municipal government and county (city) are playing an important role in the execution of disaster prevention and protection in Taiwan. The township (city) office doesn’t actively participate in those related items as a leading role. This make disaster prevention and protection not to proceed at first time, it still needs to depend on the superior government organization’s assistance and logistic support. Consequently, we do the comparison by means of observation field and citation. Then, we hope to find out those related shortcomings and problems, review the operating procedure, and supply policy, furthermore, those can enhance disaster prevention and protection competence of the township (city) office.

並列關鍵字

disaster prevention and protection system ； mission and implementation of township (city) o ； regional disaster prevention and protection.

參考文獻

〔16〕新竹縣政府，新竹縣災害防救辦公室設置要點，2011。

〔21〕農委會水土保持局土石流防災資訊網網站

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〔2〕陳火炎、熊光華所著「防救災體系與計畫之資料蒐集及資料庫建立之研究」及內政部消防署專題研究報告書，民國88年6月10日，第50頁。

〔3〕原行政院災害防救委員會網站(http://210.69.173.12/)-災害防救地區計畫資料)。