災害防救與社區韌性發展：以屏東大後部落為例

Abstract

社區自主防災的成效左右災害治理體系之穩健，亦攸關在地社群永續發展的公平正義，因此災區居民能否培育出應變災害及社區發展的韌性，當屬重要的課題。然而現有文獻對此建構過程還沒有足夠的關注，對於弱勢社區如何從他助轉換為自助的動態描繪，仍存有一定的理論空白。爰此，本文以屏東縣來義鄉大後部落的社區自主防災發展為例，在調適治理的分析框架下，透過深度訪談及文獻分析，檢視社區韌性如何經由外力輔助逐步成熟。研究發現，非營利組織的參與有助於建立社區自主韌性，而領導者則掌握權力調節的策略性角色。此結論一方面細緻化調適治理框架中，對於領導權力調節的討論，另方面亦彰顯多層次治理體系、網絡、協力，以及學習等社區自主防災的成功要件。作者認為，倘若政府部門能夠釋放更多自主空間給基層社會，此般公民力量就較有機會展現其彈性；而確保社區關鍵組織的建立、重視多元社區的個殊性，以及維持社區防災所需資源等層面，則共同構成災害治理的穩固制度基礎。

The effectiveness of a community self-prevention program for disaster is the key to the development of a disaster management system and is strongly associated with the fairness and justice of the sustainability of the local communities. More specifically, it is essential to investigate whether residents have the capacity to establish their autonomy and cultivate skills for community self-prevention for disaster programs. The existing literature presents a gap in theory building for understanding the transformation of forming a disaster-prevention program within a community, rather than a top-down and command and control process. By using in-depth interviews with the leaders and participants of the disaster-prevention program of the DaHo Tribe of Laiyi Township in Pingtung County, this paper identifies two key actors in the transformation process: the participation of nonprofit organizations helps to build the capacity of the local residents while the local leaders play a strategic role in power distribution among the local residents. Our findings not only contribute to the theoretical debate of the power distribution among leaders, but also highlights the potential of building multilayered institutions, participation and collaboration, self-organization and networks, and learning and innovation through the disaster-prevention program. The implications from our paper illustrate that government should adopt a governance tool that includes citizen participation in the policy implementation phase and grants civil society a higher degree of flexibility to form a bottom-up multi-level governance system that resolves concerns and issues of the local residents, such as disaster prevention and other public affairs. Finally, this paper suggests that the public sector still plays a significant role in collaborative disaster-response networks, especially in having to collaborate with NGOs and local communities in addressing various types of natural disasters; it also recommends the establishment of a community-based organization, integrating indigenous culture and knowledge, and equipping the local community with necessary skills and resources.