重大災害資訊治理模式之交易成本分析

Transaction Cost Analysis of Information Governance Structures for Disaster Response

在2009年莫拉克風災之前，我國是採用層級節制的模式來整合防救災資訊。但根據莫拉克風災的經驗，這套模式難以因應重大災害。當時，臺灣數位文化協會與受災縣市、中央災害應變中心合作，蒐集災民發布至網路的訊息，並透過網路揭露官方的整合性訊息，縮減政府與民間的資訊落差。本文假設，政府於重大災害發生時，要採用層級節制、雙邊治理或三邊治理模式來處理防救災資訊，會受蒐集、登錄、驗證等交易成本的影響。本文採文獻探討、深度訪談、個案研究等研究方法，運用交易成本理論，論證重大災害時，應如何選擇防救災資訊的治理模式。研究結果發現，政府在莫拉克風災時，因救災人力不足，EMIS系統設計不良，加上重大災害本身的不確定性高，大幅提升防救災資訊的交易成本。當災情達一定之規模時，三邊治理模式即比雙邊治理、層級節制模式更有效。最後，本文認為導入三邊治理模式，並將資訊科技妥善運用於防救災資訊的整合，可降低政府因應重大災害的交易成本。

Prior to Typhoon Morakot in 2009, Taiwan applied the hierarchical control model to manage disaster response information. However, the experience of Typhoon Morakot demonstrated this approach to be inadequate for dealing with major disasters. Instead, cooperation between the Association of Digital Culture, local governments in the disaster area, and the Central Emergency Operation Center allowed the collection of messages posted online by disaster victims, which were then collated and posted on official government websites, reducing the information gap between the government and the general public. This article argues that the choice of a hierarchical control model, bilateral governance, or trilateral governance model in the event of a major disaster affects the transaction costs associated with gathering, inputting, and verifying information. The article uses a literature review, in-depth interviews, and case study research, and applies transaction cost theory to the question of which governance model to adopt for dealing with disaster response information in the event of a major disaster. According to the research findings, when Typhoon Morakot hit, a lack of disaster response manpower and poor emergency management information system design, together with the uncertainties associated with a major disaster, substantially increased the transaction costs associated with disaster reduction information. When disasters have reached a certain scale, the trilateral governance model is more effective than the bilateral governance or hierarchical control models. Finally, we argue that the trilateral governance model and the proper use of information technology to integrate disaster information can reduce the transaction costs associated with the response to major disasters.