預防巨災型複合性災害之公私管制—以政策型保險為核心

Abstract

近年來臺灣飽受巨災型複合性災害之苦，但此並非臺灣所獨有之現象。天然災害的基本風險與人為因素的全球暖化或核子等科技事故的環境風險之結合為近年來大規模災害發生的新型態。環顧鄰邦乃至寰宇，天然災害之災損迭創各國新高者屢見不鮮，可見因應巨災型複合性災害之機制與相關法制已不可或缺。 本文從臺灣公部門因應巨災所面臨的風險管理機制、法制與財源上的限制濫觴，觀察目前先進國家預防天然災害的公私管制措施，並以國家間政策型的天然災害保險制度發展作為比較基礎。可以見得，多數國家的公部門如同臺灣，在天災發生時於應變上面臨著機制、法制與財源上應變不足的問題；從預防的角度言之，部份國家於防災規劃、天災保險制度的發展上均有所欠缺，並且有此類保險普及率不足之問題。為解決全球南北差距之現象以及有鑑於複合性災害跨境性、巨損性之特徵，世界上若干跨政府組織與非政府機構，均紛紛提出組成「公私合夥的多重部門」作為防災機制與風險分散法制的建議。 複合性災害環伺的島嶼－臺灣，在此世界性防災趨勢的洪流中，將如何藉由寰宇之經驗，改善既有的住宅地震保險基金制度、建立永續的防災機制與切合國情的天災保險法制，以及如何透過合理的風險分配及成本效益的考量，以貫徹強化抗災韌性與風險減緩之目標，則為本文結論之回應。

Not only Taiwan, humans worldwide already had an increased feeling of peril thanks to increasing numbers of natural and human-made catastrophes during recent years. Catastrophic compound disaster integrating fundamental and environmental risk appeared in a world undergoing climate change and technical accidents such as nuclear accidents. Catastrophic compound disaster had been creating record-breaking high financial lose among countries. Evidently, mitigation measures and related necessary regulations were both indispensible to face the problem. Whereas the restriction of Taiwan public sector’s risk management, legal system and institutions and financial resources while responding disasters, by comparative research of the progressive national government risk pools in different developed countries, the initial step of my dissertation was to observe the current operation of preventative public and private regulatory measures in combating natural disasters. What was found, similar to Taiwan, public sectors worldwide underwent a harsh time resisting disasters with aforementioned restriction. From a global view of risk management, part of the countries could not immediately respond to or recovery from disasters due to lack of efficient plan of responding officers as well as complete and widespread risk pools. Whereas the characteristics of cross border and enormous loss of compound disasters, several NGOs and NPOs coordinately suggested the constitution of “Multi-Stakeholders” policy to enhance the resilience of developing countries. That is, combining public and private partnerships (PPPs) to mitigate risk. In a world trend of preventing disasters, Taiwan, an island with threat of compound disasters, should take global experience into consideration. For the issue of improving current Residential Earthquake Insurance Fund and constructing sustainable disaster preventation framework including Taiwan specific government risk pool, how to attain the objective of resilience enhancement and risk mistigation via proper risk transfer mechanism and capital efficiency consideration was reflected in the conclusion.