大規模災害災後重建計畫擬定與執行之探討—以九二一震災鄉鎮市重建綱要計畫三個案為例

Abstract

為使大規模災後重建計畫有助於重建工作的進行，本研究以九二一震災後擬定的鄉鎮市重建綱要計畫為研究對象，觀察霧峰鄉、大里市及國姓鄉三個鄉鎮市擬定和執行重建綱要計畫的過程中，有關基礎資料的調查方式、提供民眾參與的管道、鄉鎮市推動組織的運作，以及各類復原與重建性質之計畫方案的配置方式與執行情形等四個面向，透過不同操作模式之下鄉鎮市重建綱要計畫執行結果的比較分析，輔以鄉鎮市重建綱要計畫運作體制的探討，以及行政院重建推動委員會推動重建工作的審定方式和其中有關鄉鎮市重建綱要計畫擬定與執行上的看法與經驗，提出未來災害再次發生時重建計畫的修正方向。 本研究發現，在基礎資料調查方式上，詳盡的災害受損調查情形使得重建綱要計畫能採取更為積極的重建模式，而平時嚴謹擬定與檢討都市計畫相關資料，有助災後透過二手資料的分析，更為迅速並適切的研擬重建願景及計畫方案，而在民眾參與的管道上，透過規劃團隊專業者的形象，並在其與重建推動委員會和民眾三者間建立溝通機制，有助於整合共識尋求共同目標，並提升地方凝聚力及主動精神，另有關鄉鎮市組織的運作，透過協力單位的協助及明確的重建經費原則，有助於鄉鎮市更能以主導者的角色研擬與執行重建綱要計畫，並透過明確的重建綱要計畫作業原則及重建工作執行相關法令規範，增進重建綱要計畫的務實性與可行性。

To enable post-disaster reconstruction plans to be helpful for reconstruction work, this study focuses on 921 earthquake township reconstruction master plans in Wufeng Township , Dali City, and Guoxing Township, analyzing four aspects including the method of investigation on elementary data, the channel for public participation, the operation of township organization, and the allocation and execution of restitution and recovery programs. Through analyzing and comparing the executive results of these township reconstruction master plans using various manipulation models, the study also reviews the frame of township reconstruction master plans, the evaluation method in enabling the reconstruction work by Executive Yuan Resurrection Committee as well as their views and experiences in planning and executing these reconstruction master plans in the hopes of providing some directions for future post-reconstruction plan-making. In this study, it is found that firstly, detailed disaster damage survey could help the reconstruction plans to be processed in a more proactive way, and analysis of second-hand data gained from some urban planning cases that were planned and reviewed in peacetime is also helpful for rapidly and appropriately making up reconstruction vision and programs. Secondly, the communication mechanism building up among the professional planning team, reconstruction committee, and the public contributes to the three parties in terms of setting up a common goal, reaching a consensus, and forming the local cohesion as well as initiative spirit. Thirdly, the dominant role of township organization in planning and executing reconstruction plans could be established through the assistance from other organizations and clear principles of reconstruction funding. Lastly, clear regulations and operating principles for reconstruction plans could help the reconstruction plans to be more pragmatic and feasible.